HomeMy WebLinkAbout1999 Central Lansing Comprehensive Plan A Revitalization Strategy for Lansing Ciry CenterDocument:
1999
Central Lansing
Comprehensive Plan:
A Revitalization Strategy for
Lansing City Center
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This is the final draft of the Central Lansing Comprehensive Plan. It will be the
subject of a public meeting held by the City of Lansing Planning Board on
Tuesday, March 16, 1999, at 7 p.m. in the City Council Chambers, Tenth Floor,,
Lansing City Hall, 124 W. Michigan Avenue, Lansing, Michigan. Y
Copies of the draft plan will also be available for examination at the Lansing
Planning Office at 316 N. Capitol Avenue, or in the City Clerk's office on the Ninth
Floor of City Hall, 124 W. Michigan Avenue, between 8 a.m. and 5 p.m. on city
business days.
If you have any comments, please phone Bill Rieske at 483-4948:
"I
•
•
March 1999
10 Acknowledgments
Mayor
David C. Hollister
City Council
Tony Benavides, President
Joan E. Bauer, Vice President
Harold J. Leeman, Jr.
Louis H. Adado
Ellen M. Beal
Larry Meyer
Sandy M. Allen
Michael C. Murphy
Planning Board
John P. Ruge, Chair
David F. Greiner, Vice Chair
Andrew Frederick
Garry Goolsby
Deborah Winfrey -Keene
Steve A. Miller
Jarl Nischan
Michael M. Smith
Principal Shopping District Steering Committee
Trygue Vigmostad, Chair
Lansing Regional Chamber of Commerce
Patricia Hanley
Handicapper Advocate
Craig Ruff
Lansing 2000
Michael Smith
Planning Board
David Ferguson
Ferguson Development
Byron Roberts
Lansing State Journal
011ie Kingsbury
Board of Water and Light
Peter C. Sullivan
LEPFA
Paula Cunningham
Lansing Community College
Kathe Rushford Carter
State'of Michigan
Lisa Carey
Old Town Main Street
Janet Roherback
Principal Shopping District
Nancy Achenbach
Downtown Merchant
Mark Fedorowicz
CATA
Robert Brockwell
Citizen Representative
Ron Koenig
Historic District Commission
Judge Michael G. Harrison
Ingham County Circuit Court
Sue Wagner
Principal Shopping District
Carol Wood
Lansing Neighborhood Council and LSJ Editorial Board
Department of Planning and Neighborhood Development
Dennis J. Sykes
Planning Director
Eleanor Love
Planning Manager
Bill Rieske
Principal Planner
Jim Ruff
Senior Planner
Steve Hayward
Senior Planner
Jim Sturdevant
Senior Planner
Donna Wynant
Senior Planner
Doris Witherspoon
Senior Planner
Sue Cantion
Preservation Planner
Consultant Team
McKenna Associates, Incorporated
HNTB Michigan, Incorporated
The Green Group
This report was prepared in part using funds from the
Michigan Department of Transportation, the United States
Department of Transportation, and the Tri-County
Regional Planning Commission. The opinions, findings
and conclusions expressed in this publication are those of
the authors and not necessarily those of the United States
government or Michigan Department'of Transportation or
the Tri-County Regional Planning Commission.
10 Table of Contents
INTRODUCTION i
Study Process
The Opportunity
How to Use a Comprehensive Plan iv
Section I DEVELOPMENT OBJECTIVES
The Study Area
Regional Context
Development Plan Objectives
Section II DEVELOPMENT ANALYSIS
Existing Land Use
Development Opportunities and Constraints
Washington Avenue Retail
Entertainment District
Old Town District
Capitol Complex
The Riverfront
Residential Development
Transitional Zone
Lansing Community College
Architectural Character
Section III MARKET ANALYSIS
Methodology
Assumptions
Key Findings
Conclusions
Recommended Additional Retail Space
Other Uses Recommended
Tenant Type Rationale
Trade Area and Market Characteristics
Trade Area
Access
Parking
Competition
Market Characteristics
Residential Characteristics
Non -Residential Patron Segment Characteristics
0
2-1
2-1
2-3
2-3
2-5
2-5
2-6
2-6
2-6
2-7
2-7
2-8
3-1
3-1
3-2
3-3
3-4
3-4
3-5
3-7
3-12
3-12
3-12
3-13
3-14
3-17
3-17
3-18
Section IV CENTRAL LANSING CENTRAL DEVELOPMENT PLAN
4-1
Future Land Use Concept
4-1
Future Land Use Plan
44
Future Land Use Map
4-6
Low/Moderate Density Residential
4-6
Mixed Use/Medium Density Residential
46
High Density Residential/Accessory Mixed Use
4-6
Low Density Residential/Ground Floor Business
4-6
Capitol Area Business/Medium Density Residential
4-6
High Technology/Light Industrial
4-9
Neighborhood Services
4-9
Gateway Commercial
4-9
Washington Square Commercial
4-10
Entertainment District
4-10
Old Town District
4-10
Capitol District
4-11
Lansing Community College
4=11
G reenway
4-11
Future Study Area
4-12
Alternatives Considered
4-12
Community Circulation
4-17
Vehicular Improvements
4-19
Roadway Improvements
423
Public Transit
4-24
Parking Improvements
4-28
Community Design Recommendations
4-31
Design Guidelines
4-31
Strengthen Linkages
4-31
Street Environment is Primary Civic Space
4-31
Two-way Street Character
4-32
Cedar Street
4-32
Larch Street
4-33
Organization of Public Spaces
4-36
Way -finding
4-36
Parking Design
4-36
Signage
4-37
Gateways to Downtown
4-37
Riverfront
438
River Park Expansion
438
Bicycle and Pedestrian Bridges
4-38
Physical and Visual Linkages to the River
4-39'
Capitol District
439
Commercial/Retail Core
4-39
Michigan Avenue
4-40
Washington Avenue (Kalamazoo Street to Michigan Avenue)
440
Washington Square (Michigan Avenue to Shiawassee Street)
4-43
Linkages to the Lansing Community College Campus
4-44
Old Town District
4-45
Entertainment District
4-48
Pedestrian Improvements
4-48
Proposed Performing Arts Center
4-49
Redevelopment Opportunities
4-51
City Market
4-51
Board of Water and Light Building (Ottawa Street Power Station)
4-51
Riverfront City Parking Lot Site
4-51
Riverfront Parking Structure
4-51
Additional Redevelopment Opportunities
4-52
Section V STRATEGIC IMPLEMENTATION PLAN
5-1
General Administration
5-1
Political/Educational Administration
5-2
Financial Administration
5-2
Regulatory Administration
5-3
Form Public and Private Partnerships and Public/Public Partnerships
5-3
Increase Code Enforcement
5-4
Launce a Cornerstone Project
5-4
Create a Sense of Place
5-5
Conclusion
5-5
Acknowledgments
5-8
10
What a Comprehensive Plan Is and Is Not.
Many citizens and city officials alike do not fully understand exactly what a Comprehensive
Plan consists of or what it actually does. It is often confused with other documents and
regulations, especially the Zoning Ordinance. When reviewing this Plan, it is helpful to
remember the following comparisons.
The Comprehensive Plan is:
❖ Prepared with assistance from the appointed Steering Committee and adopted by the
Planning Board.
❖ A citizen -driven document.
❖ A guide or "working blue -print" to future land use, traffic circulation, and community
facilities decisions.
❖ A guide for the Planning Board, City Council, Planning Department and Board of
Appeals on zoning decisions.
❖ The foundation of zoning and land use within the Central area of Lansing.
•A Regional, in that considers factors beyond the study area limits. Comprehensive, in that
it considers all appropriate land uses for the central area.
The Comprehensive Plan is not:
❖ A law. It is a plan.
❖ A zoning map. It is a guide for future zoning decisions.
❖ A basis for property tax assessments.
❖ Inflexible. It can be amended as conditions change.
❖ . Permanent. It should be reviewed periodically.
•
Comparison of the Comprehensive Plan and a 7nnina (lrriinnnrd-
COMPREHENSIVE PLAN
ZONING ORDINANCE
Provides general policies for the City. (e.g.
Sets forth zoning regulations - specific legal
preserve the business district, protect natural
requirements on uses permitted on each lot, setbacks
features during development, etc.)
from the street and property lines, height, signs,
parking standards, etc.
Flexible, written to be able to respond to changing
Rigid, requirements formal legislative amendment to
conditions
change
Provides data and analysis on the community,
Deals only with physical development, how to
socio-economic issues, goals, and potential actions
administer the Zoning Ordinance and
appeals/variances
Adopted by the Planning Board
Adopted by the City Council
Changes can be made by the Planning Board
Changes are made by City Council. Appeals and
variances are made by the Board of Appeals
The Comprehensive Plan provides general direction on the City's future
development pattern. The plan also provides policies and actions for community
leaders to consider in the future. Some of the Comprehensive Plan
recommendations will be implemented through amendments to the Zoning
Ordinance text and map. However, the Comprehensive Plan itself does not
change the Zoning Ordinance nor the zoning of any property.
0
•
Fish Ladder on the Grand River
0
❖ By providing a mixture of
housing types, retail uses,
and workplaces in walking
distance, the bonds of
authentic community are
formed
•
Introduction
Central Lansing contains the elements necessary for a vital and
exciting urban center, but lacks an essential dynamism. In the effort
to develop strategies to achieve this dynamism, the Consultant Team,
.along with the Central Lansing Comprehensive Plan Steering
Committee worked together for nearly a year to draft the Central
Lansing Comprehensive Plan (The Plan).
The most critical problem identified is the need to increase desirable
and appropriate activity downtown. Equally important, it was
determined that downtown's residential base must be increased. And
that those residents must reflect a diverse range of income, age,
education, race, and ethnicity.
For Central Lansing to prosper it must be a place in which people
choose to live, work, study, worship, and play. It must be well -
maintained, pedestrian -friendly, clean, safe, and tolerant. It must be
committed to the preservation of its heritage, the protection of its
natural environment, and the encouragement of community and
family values.
Central Lansing already has the fundamental elements necessary for
crafting a great urban center. It has beautiful parks and gardens. It
has fine businesses, restaurants, churches, and schools. It has historic
architecture and well established neighborhoods. Perhaps most
important it has the Grand River.
Lansing's River Walk has yet to reach its full potential. From
Lansing's earliest times the Grand River has been essential to the
City's commerce, industry, transportation, and recreation. But in
recent years many businesses have turned their backs to the river.
This must be reversed. Our river can and should be a unifying
element in Central Lansing.
However, concentrating on development of the riverfront won't be
enough. To ensure a coherent and inviting downtown, more effective
circulation patterns and way -finding methods must be established.
The current street layout, with needlessly wide and/or one-way
streets, frustrates motorists, pedestrians, bicyclists, business owners,
and shoppers. Similarly, the current signage is designed to efficiently
direct vehicles out of Central Lansing, but does not provide direction
to the many amenities in and around Central Lansing.
- i - March 1999
Gateways marking the entry into Central Lansing and beckoning
vistas are essential. Properly designed and coordinated signage is
needed so that once inside Central Lansing a visitor will have no
difficulty finding the places they want to visit.
Central Lansing has an opportunity to redesign its streets, sidewalks,
and open space to support a livable community, improve the quality
of the pedestrian environment and create manageable traffic flow
throughout Central Lansing. Once the revitalization process set forth
in this plan is implemented, the leadership in Lansing must manage
redevelopment to ensure that it refines the City's identity and
improves its image. Design review, public/private partnerships,
marketing, and implementation of key projects will all help to ensure
the realization of Lansing's potential to be a vital urban center.
The Opportunity
Now the City has an opportunity to redesign its streets, sidewalks, and
open space to support a livable community, improve the quality of
the pedestrian environment, and create a manageable traffic flow
throughout the downtown. Once the revitalization process as set
forth in this plan is implemented, the leadership in Lansing must
manage redevelopment to ensure that it refines the City's identity and
improves its image. Design review, public/private partnerships,
marketing, and the implementation of key projects will all help to
ensure the realization of Lansing's potential to be a more vital urban
center.
Study Process
Over the past year the City of Lansing has conducted an intensive
effort to develop the Central Lansing Comprehensive Plan (The Plan).
Throughout the planning process, emphasis has been placed on the
need to build a consensus plan which can win the support of a broad
range of community interests.
Monthly meetings were held with a broad based Steering Committee,
representing downtown business and residential interests appointed
by the Mayor. These meetings began in September 1997. The
function of the Steering Committee was to provide input on the
recommendations of the document and to keep the organizations they
represent informed about the progress. Other interested individuals
attended these meetings as well. Work sessions were conducted with
City staff and department heads to receive their input.
- it - March 1999
❖The plan offers several
solutions to improving
pedestrian, vehicular, and
public transit circulation
downtown.
❖ Once the revitalization
process in implemented
Lansing must manage
redevelopment to ensure
that it refines the City's
identity and improves its
image.
•
•
*idy Process Two town meetings were held at the inception of the project. The
format included workgroups for small scale round table discussions.
. Steering Committee Meetings The input obtained from these sessions established the basis for the
Work sessions with City staff plan objectives.
•:• Two public town meetings held
Over a three day period stakeholder interviews were conducted to
receive information regarding the plan. Those interviewed included
interviews
conducted
cted
representatives from developers/bankers/realtors, the Lansing Planning
Board, Colleges/Libraries, MSU, local merchants neighborhood
•:• Planning Board formal adoption
leaders, Lansing City Council and Old Town Main Street. An
process
extensive outreach effort was conducted by the City Planning
Department with presentations to the following groups:
❖ North Lansing Kiwanis Club
❖ Lansing 2000
❖ Downtown Merchants
❖ Old Town Main Street Board
❖ City Council Committee on Development and Planning
❖ Principal Shopping District Board
❖ City Administration Operational Cabinet
❖ Greater Lansing Board of Realtors
❖ Neighborhood Organizations Representative
❖ Lansing Entertainment Public Facilities (LEPFA) Board
❖ Board of Water and Light
❖ Lansing Regional Chamber of Commerce
0
Using the gathered information the consultant assembled a rough
draft of The Plan. The Steering Committee reviewed and revised the
rough draft. The final draft of The Plan was forwarded to the Planning
Board. The Planning Board held a public hearing. The Planning
Board reviewed and revised The Plan. The Board adopted The Plan.
The process of analyzing and making recommendations for the
downtown area is described in Section I. Section II describes the
design studies which were conducted to understand existing land uses
and potential land use focal points, vehicular and pedestrian
circulation patterns, development opportunities and constraints,
significant buildings and landmarks, and the open space/riverfront
network.
The market analysis which is essential in determining feasible land
use recommendations and implementation strategies is set forth in
Section I11. The methodology for the market analysis is contained in
- iii - March 1999
this section. Based on this information, conceptual development
plans were prepared, culminating in the Central Lansing
Comprehensive Plan which is described in Section IV. This section is
the heart of the project which expresses through animated illustration
and text a future land use plan with design and circulation
recommendations. Section V presents implementation strategies
which will ensure the recommendations contained in this plan will
come to I ife.
How to Use a Comprehensive Plan.
The Plan is intended as a guide for land use, urban design,
development, zoning and capital improvement decisions. The Plan
may be used in many different circumstances, including, but not
limited to, the following:
❖ Reviewing development proposals. The proposal is checked
to ensure that it meets the goals and objectives of The Plan.
❖ Reviewing rezonLO& requests The criteria for rezoning should
include consistency with the future land use map and the goals
and objectives of The Plan.
Viewing changes in their long range context While zoning is
present day, The Plan is longer range. Thus, while an area on
the future land use map may be designated for commercial
use, actual zoning to commercial use may not be appropriate
until years later.
❖ Considering amendments to the Zoning Ordinance text The
amendments should be based on the future land use map and
the goals and objectives of The Plan.
❖ Evaluating spending decisions on physical improvements City
leaders should consider the priorities listed in The Plan. A
�. Capital Improvements Program should be thoroughly reviewed
and updated every six (6) years and revised with individual
projects annually.
❖ Reviewing variance requests and appeals The Board of
Appeals should check to see if the goals and objectives of The
Plan would be significantly compromised by the granting of a
variance or appeal.
•
- iv- March 1999
0
❖ Maintaining the Comprehensive Plan. The Plan is intended to
be a living document, not a shelf document. The Planning
Board, City Council, Mayor, and City staff should have an
annual meeting to review The Plan goals and objectives and
the future land use map. Applicants whose project is
inconsistent with The Plan must prepare an impact analysis
demonstrating how the use is appropriate. If a conflicting
rezoning is granted The Plan must be amended. Amendments
should also be made as new data becomes available or public
attitudes change.
❖ Public Education. Many controversies could be avoided if
everyone involved is aware of the content and designs of The
Comprehensive Plan. A well designed Plan can help steer
development into appropriate areas and set in place guidelines
to minimize any negative aspects of proposed land use
changes. The City must publicize and market the Plan. The
more the public, property owners, and developers know about
the Plan, the more smoothly a proposal will progress.
❖ Notifying Relevant Governmental Agencies. Other
governmental agencies must be aware of The Plan.
Developments in other cities and the plans of other agencies
(such as MDOT) can have a significant impact on Lansing. In
order to reduce any negative impacts from such cases, the City
must let other cities and governmental agencies know of the
Plan. It also helps to include their input into creating the Plan,
as well.
- v - March 1999
•
•
0
- vi - March 1999
• Section
Development Objectives
The Study Area
The study area is bounded to the south by Interstate 496, to the west
by Capitol Avenue and where it jogs four blocks west to incorporate a
majority of the state complex. The eastern boundary is generally
defined by the rail line until it crosses North Street, which establishes
the northern limits of the study area. The area is comprised of all
forms and configurations of land use. At a glance the road network is
a simplistic grid pattern, but taking a closer look a greater challenge
lies in the one-way street system. Bisecting the area, is the Grand
River which offers a mixture of opportunities and constraints .
0
0 1-1 March 1999
Regional Context ,
Lansing, the capital city of Michigan, is located in the Clinton -Eaton -
Ingham Tri-County Region which is situated near the center of the
lower peninsula of Michigan. To the east are the fast growing
Meridian Township, Okemos, and the City of East Lansing. To the
north, west, and south are emerging communities such as DeWitt,
Delta and Delhi Townships. With the help of 1-96, 1-69, 1-496, U.S.
127, U.S. 27, and state highways 99, 43, and 143 other regional
centers in the state such as Grand Rapids, Kalamazoo, Flint and
Detroit are only one hour away. North of the study area, air
transportation is provided through Capitol City Airport.
Major employers in the area (General Motors Corporation, Michigan
State University, and the State of Michigan) provide thousands of jobs
for Lansing residents and have influenced dramatic changes in
development patterns in the area.
Lansing is also a regional center for banking, finance, and commerce
with approximately fourteen banks in the downtown area. Regional
educational institutions (Michigan State University, Lansing
Community College, Davenport College, and Thomas Cooley Law
School), hospitals (Sparrow Health Systems and Ingham Regional
Medical Center), cultural attractions (Impression Five Science
Museum, Boarshead and Riverwalk Theaters, Wharton Center for
Performing Arts, Kresge Art Museum, Michigan Historical Museum,
R.E. Olds Transportation Museum, Lansing Art Gallery, and Lansing
City Market), and sports venues (Oldsmobile Park Stadium, Jack
Breslin Student Event Center, Spartan Stadium, and Munn Ice Arena)
are also nearby for residents, employees and visitors to enjoy.
0
1-2 March 1999
0 Development Plan Objectives
The goal of The Plan is to enliven Central Lansing by creating a
dynamic and vibrant area of commercial, retail, arts, entertainment,
waterfront, educational, governmental, and residential interests .
This will encourage public and private investment and reinvestment,
thereby attracting residents, consumers, businesses, employees and
visitors.
To create a dynamic and vibrant area we must:
❖ Encourage development and redevelopment, both commercial
and residential
by developing activity centers
by encouraging adaptive reuse of existing structures
by preserving the built environment
❖ Encourage and strengthen linkages, institutional, social, and
transit
between different activity centers
between activity centers and neighborhoods
between institutions, activity centers, and
neighborhoods
❖ Preserve the architectural and cultural resources of Central
Lansing
by protecting residential neighborhoods adjacent to
commercial areas
by implementing design guidelines that preserve the
look and feel of neighborhoods and commercial areas
by supporting the arts and other cultural amenities
❖ Encourage more people to live in Central Lansing
by increasing the diversity of the residents, both cultural
and economic
by encouraging housing that is attractive to diverse
incomes
by adaptive reuse of existing structures
by changing existing zoning codes that discourage
mixed uses
❖ Present the vitality and beauty of Central Lansing
by creating multiple gateways that engage all the senses
(visual, auditory, of factory, tactile, etc.) and create a
sense of place
by creating attractive and stimulating outdoor spaces
that attract people
by public relations and marketing
by capitalizing on the Grand River
1-3 March 1999
❖ provide for ease of transport throughout the area:
by anticipating future needs relative to the land use
plan
by making it convenient and enjoyable to use various
modes of transportation such as automobiles, mass
transit, bicycles, and pedestrian
by providing for the parking needs of visitors,
customers, and employees
•
1-4 March 1999 0
0 Section II
Development Analysis
Existing Land Use
This section presents a series of analysis diagrams and preliminary
design studies which examined specific issues within the downtown
area, and assisted in developing alternative solutions.
The Existing Land Use Plan illustrates the existing uses within the
development area. The uses are broken down into very specific
categories to fully understand the type of activity in the study area.
Generally the map identifies single family residential, multiple family
residential, commercial, industrial, and vacant uses in the district.
As expected, central Lansing consists of primarily commercial and
office land uses. The highest concentration of residential land uses
are north of Saginaw and along the southern boundary of the district
along Interstate 496. For the purposes of description the study area is
broken into three sectors.
Sector 1 has a healthy mixture of commercial and residential uses.
The commercial core is along Grand River Avenue, which contains
some land remaining vacant. The residential land uses are somewhat
scattered, but create a decent base for future growth. The effects of
sprawl from the downtown core is seen along Washington Avenue
where many older homes have been converted to retail or office use.
Finally, large pieces of industrial land exist along the rail line and the
river.
The more established commercial area is found in sector 2 which has
a minimal amount of large vacant lots. The commercial and office
uses in this area have resulted in an abundance of underutilized land
for parking lots and structures. This, of course, excludes the river park
areas between Michigan Avenue and Shiawassee Street. The river is
most visually and physically accessible in this area and is utilized as a
resource to the community in this sector.
Typically referred to as the Capitol District, the third sector is
primarily offices and supportive services, which also includes large
parking lots, for the City and the state. Similar to sector 1, the
encroachment of these uses into residential neighborhoods can be
seen in the northwest corner where seven blocks of residential
structures are predominately converted to retail or office.
2-1 March 1999
EXISTING
BLAND USE
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
LEGEND
Right -of -Way Lines
Land Use Sectors
am fill.... IMBOB.1p.1-15111
Grand River
SFR 1-S, Basement
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SFR Expandable, Basement
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.
SFR Expandable, Slab
SFR Misc, Slab
MFR 2 Unit
N iu Er
MFR 3 unit
MFR 4 Unit
_
MFR 5+ Units, Res Style
®.
House To Office
House To Retail
MFR Condominiums
MFR Walk Up Apartments
MFR Elevator Apartments
Com Hotel, Club, Motel, Etc.
Com Res.Type Const., Etc
Com Retail Stores, Rest. & Bars. Etc.
Com Warehouse, Garages, Etc.
Com Offices, Banks, Schools, Etc.
Com Theaters, Churches, Etc.
Com Sheds, Barns, Etc.
Com Service Stations
0160F]
Com Misc.
Industrial
Vacant SFR, Lot
NK�
Vacant SFR, Acerage
-
Vacant SFR, Odd Pieces, Partials, Landlocked, Et
Vacant MFR, Lot
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■
Vacant MFR, Odd Pieces, Partials, Landlocked, Etc.
Vacant Com, Lot
Vacant Com, Odd Pieces, Partials, Landlocked, Etc.
Vacant Industrial, Lot
Vacant Industrial, Odd Pieces, Partials, Landlocked, etc.
N
600 0 600 1200 Feet
2/98
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I
0 Development Opportunities and Constraints_
•
As existing land uses in the downtown were surveyed and recorded, a
number of development opportunities and constraints for the area
became evident. The Opportunities and Constraints Diagram
identifies key land use issues that were integral in establishing the
goals and objectives of the plan which are further carried out in the
Central Lansing Comprehensive Plan as described in Section IV.
Development opportunities and major activity centers are identified
Opportunity Areas
with asterisks. Because of their location and visibility, development
of these sites would have a major impact on downtown's image and
4-Washington Avenue
Retail
economy. Each benefit from proximity to a strong land use or
significant public amenity, and are considered to have redevelopment
•:•Entertainment District
potential. Designated by color, the three primary activity centers are
labeled as State Offices, Entertainment and Old Town. The
0-Old Town District
transitional areas, which require special attention are also labeled.
Visual and physical access opportunities are also identified to
:Capitol Complex
establish key corridors in the district.
4-The Riverfront Constraints for the City generally consist of visual and physical
barriers between prime opportunities. Large buildings along the
0-Residential Development riverfront block views and access to the river and prevent capitalizing
•:•Transitional zones on the natural asset of the Grand River. Existing one-way street
patterns impede accessibility for motorists to the key development
areas.
The opportunities and constraints can be summarized into the
following areas:
Washington Avenue Retail
The single most important element in any downtown is its "main
street", the street or crossroads where retail activity is concentrated.
As described further in this document, Lansing is blessed with size
and variety where more than one "main street" is crucial. As a
traditional retail center, Washington Avenue provides support for
employees, visitors and patrons of the Capitol District. Competition
from malls mandates special attention be given to the physical
appearance and convenience of the Washington Square Retail
District. Uninterrupted, high -quality street level retail in an attractive
setting is essential.
2-3 March 1999
4■
M
Washington Avenue -
Lansing Retail Main Street
Entertainment uses generate future
development
•
The retail portion of the district includes Washington Avenue
between Kalamazoo Street and Michigan Avenue and is characterized
by historic architecture, a variety of restaurants and many specialty
retail shops. The district distinguishes itself with brick pavers, street
trees, lighting, on -street perpendicular parking and a charming traffic
circle with traditional traffic lighting at the Michigan Avenue
crossroad. As described in the market analysis in Section III, the
primary issue in the Washington Avenue District is the high potential
for in -fill development of vacant store fronts and upper level office
space.
Washington extending north of Michigan Avenue to Shiawassee Street
is a pedestrian avenue mall fronted by office buildings. The
underutilized mall is intended to serve as a gathering place for
workers during the week and a prime location for special events on
the weekend. Due to its lack of use, the mall does not receive the
necessary maintenance to continue its viability. Design
improvements should be considered which maintain and create a
"destination" for the area.
Entertainment District
Lansing has a burgeoning entertainment district located north and
south of Michigan Avenue on the east side of the river. The district
currently consists of museums, a minor league baseball stadium, a
convention center and a farmers market. These uses have generated a
need for supportive services such as restaurants and hotels to
accommodate patrons of these facilities. The designation of an
entertainment district will direct future entertainment development to
these areas and assure a business environment which will thrive while
avoiding land use conflicts.
Old Town District
This developing settlement area creates the secondary "main street"
retail component to the City. Old Town is generally located along
Grand River Avenue where it intersects with Turner Street and Center
Street. This district has become a hub for "alternative" specialty retail
such as art, photography, sculpting and furniture.
Old Town has not developed to its full capacity, however. The
existing Old Town area can support a significant amount of
additional retail, as described in the market analysis and there is still
greater potential for residential development. Its prime location on
the river and River Trail provides access and amenities for patrons and
residents.
2-5 March 1999
Though the area certainly has developed a character in its own right,
gateway features must be incorporated to create a sense of place for
the district. Improvements such as streetscape design and facade
improvements are needed to establish a distinguishing atmosphere for
the area, while encouraging a complimentary interface with adjacent
residential. Additionally, existing land uses which conflict with the
developing main street must be phased out to encourage commercial
and residential development.
Capitol Complex
As the State's capital, Lansing has the responsibility to provide
adequate services and development potential for all the state
department offices: In addition, the City must provide opportunities
for recruitment and retention of other related business that wish to
locate their "headquarters" in the capitol city. For these reasons, the
capitol complex must be encouraged to flourish. However, this must
occur within defined boundaries in order to prevent these uses from
sprawling into adjacent activity centers or neighborhoods which may
jeopardize the vitality and stability of these activity areas in the city.
The Riverfront
The City's greatest challenge is to battle the historic development
pattern which turned its back on the river. The location of buildings
on existing riverbanks have cut-off portions of the city from physical
and visual access to the river. Key areas where this situation exists
are indicated on the Opportunities and Constraints Map.
Every vital community possesses at least one public space that
brings the surrounding community together, also called a "seam".
The riverfront is perhaps the City's greatest - and most underutilized -
asset. It has amazing potential to be a very special "people place"
which will create a seam for central Lansing. The existing riverfront
park system should be expanded to create a complete connection
along the Grand River for recreational use, to provide links to the
adjacent land uses in the downtown and to serve as a destination
route between the different activity centers and districts in the City.
Residential Development
The vitality of a downtown rests in part on the round-the-clock
presence of downtown residents. In Lansing, the combined amenities
of the riverfront and proximity to downtown's retail, cultural and
employment offerings create exciting opportunities for future
residential development as well as the existing stable neighborhoods
within and adjacent to the study area. A variety of housing types
should be encouraged in central Lansing, particularly along the
riverfront.
2-6 March 1999
Old Town Riverfront
;7
•
•
Currently in central Lansing some neighborhoods are disjointed due
to land use conflicts, circulation constraints and the perception of
crime. The delineation of certain districts will define specific
non-residential use development to allow for the remaining areas to
develop into residential neighborhoods.
Transitional Zone
A transitional zone is the existing "no-man's land" between the
primary development districts in the City. These areas consist of a
mixture of residential, office, commercial and industrial. There is a
tendency in these transitional areas towards neglect because of its
exclusion from a core area. Lansing has the potential to create a core
area out of these transitional areas because many supplemental
services are needed in central Lansing.
The transitional area in the southern portion of the area is primarily
supportive office uses and highway commercial development. The
location of these uses is based on proximity to the interstate and the
capitol district. Generally located along Cedar and Larch Streets, the
transitional zone in the northeast area of central Lansing is a mixture
of residential, commercial, and industrial. Careful planning in these
areas will allow these uses to thrive together. A key focus should be
expansion and improvement of the residential areas.
Lansing Community College
The College supports approximately 15,900 students a year. These
students should contribute a great deal to the vitality of the City and
could contribute more. However, as the campus was developed, a
barrier was created along Washington Avenue between Saginaw and
Shiawassee Streets which discourages the students from integrating
into the downtown setting. Improved connections are needed
between the campus and the primary district in the downtown.
Services which are appealing to the students outside campus
boundaries should be marketed.
2-7 March 1999
Architectural Character
Architectural character is a unifying element which establishes the
atmosphere and prestige of a community. Lansing possesses the
strength of architectural, historical and cultural significance which can
be seen in many of the existing commercial office and residential
structures.
Most noteworthy, of course, is the State Capitol building whose strong
presence creates an anchor for the Capitol District. Similarly, the
Ottawa Street Board of Water and Light power plant represents the
history and stability of the downtown. Beautifully designed older
homes and the Lansing City Market remind us that Lansing can be a
prime location for residential development.
In order to maintain the same scale and quality architectural character
in the downtown, existing buildings must be maintained and reused
for purposes which will continue to serve as historic landmarks for the
City.
Knapp's Building
2-8 March 1999
State Capitol Building
Nineteenth Century Buildings on
West Grand River Avenue
•
0 Section III
Market Analysis
Methodology
Issues Addressed
As part of the planning process a market analysis is paramount in
guiding and providing support for recommendations to the future land
for theat e the neighborhoods whoand m des
for the neighborhoods and to whom do
and
use of the stud area. A market analysis is a "snapshot" in time. It
y y p
they appeal?
examines existing market conditions and retail trends. However, as
What is the trade area currently served
the market grows or changes a re-evaluation of the conclusions and
by retailers in downtown Lansing?
recommendations of this study may be necessary. Information
contained within this section is a summary of the market analysis. A
To whom do retailers in downtown
Lansing currently appeal?
complete version of the analysis was prepared as a technical
document under separate cover. The following methodology was
What additional retailers and restaurants
employed:
can be supported in the study area?
What is the optimal and supportable
1. A thorough field evaluation was conducted of the locational
size of these retailers and restaurants,
and where in the study area shouldthey
characteristics of the retailers and shopping centers in the
be ideally located?
downtown Lansing study area in September and October,
1997. In particular, the physical configuration, visibility,
What are the possible uses for the
accessibility, and proximity to competitive retail facilities of
current and expected vacant retail
these uses were evaluated. The merchandise mix, price
space?
points, selection, presentation and service levels were also
What would bean "ideal" tenant mix for
evaluated, and the approximate sales area (retail space) of
downtown Lansing?
these retailers was determined.
•
What should be the Master Plan for
retail in downtown Lansing? Additionally, a competitive inventory of all existing and
proposed shopping areas within the trade area was conducted,
as well as all major shopping centers outside the trade area
(100,000 GLA or larger). The evaluation includes observations
and comments regarding site characteristics, tenant mix,
consumer appeal, price points, and merchandising and
presentation. Please refer to Appendix 1 of this report for a
complete listing of shopping center competition and
competitive profiles.
2. An intercept survey was conducted in the downtown study
area by the City of Lansing and the Principal Shopping District.
In this survey, respondents were asked the primary purpose
and location for being in the study area.
3-1 March 1999
3. The most,recent population estimates and future population
projections were collected from both local and national
planning authorities for the defined residential trade area.
Also, the worker population was estimated with national and
local sources. Using data from both the 1990 Census and
National Decision Systems, with the most recent demographic
characteristics, such as median household income, income
distributions, median age, white-collar employment, and
average household size. This data was collected for both the
total trade area and for each block group within the trade area.
4. Expenditure potential estimates obtained from National Data
Systems were broken down into categories according to the
1992 Census of Retail Trade (updated to 1997 dollars) to
calculate the expenditure potential for various retail types
within the trade area. Based on proprietary models,
expenditure potentials were calculated for the business, tourist,
and student components and residents of the Lansing area
visiting the downtown from outside the trade area. Finally, the
supportable square footage of sales area retail space for each
retail category was determined.
5. Based on the results of the competitive analysis, the consumer
intercept surveys and the retail expenditure potential
calculations, a retail void analysis was conducted. The
purpose of this void analysis was to compare the supportable
square footage for each retai I category with the actual square
footage for each category to indicate if there is an over -stored
or an under -stored situation by retail category within the
Lansing Market Area.
6. Based on the results of the void analysis, outlying retail
competition, physical and psychological barriers and retail
gravitational flow, retail types were identified, as well as the
amount of retail space which can be supported in the Lansing
study area.
Assumptions. The following assumptions were made for this
study:
1. All population data obtained from local and national sources
are accurate and reflect the true characteristics of the market.
2. The economic conditions of the metropolitan Lansing area will
remain constant. Given the current market conditions and the
market conditions of the Lansing market over the past twenty
3-2 March 1999
•
•
Key Findings
❖Convenience -Oriented Retail
Area
•:•Limited Retail District
•:•Potential of Additional
Businesses
:•Unfavorable Trade Area
Demographic Characteristics
0-Room for Retail Growth
•:•Strong Competition in
Neighboring Trade Areas
•
years, it is safe to assume the economic conditions of the
metropolitan Lansing market will remain constant within the
next five years. Should the market change either without
numerically or demographically a re-evaluation of the Lansing
market will be necessary.
3. No major competitive changes will occur, other than those
mentioned in this report.
Proposals, such as the rehabilitation of Frandor Shopping
Center and the redevelopment of the Waverly Golf Course had
not progressed enough to be incorporated into this report.
However, both developments attract a "suburban shopping" customer
much different from the consumers utilizing downtown Lansing. As
such, their development would have minimal, if any, impact on the
downtown Lansing area and supportable retail space.
The conclusions expressed in this report are based on the analysis of
the facts and circumstances as they presently exist. These conclusions
represent our attempt to forecast the future using the data and
assumptions as specified. To the extent that the data change, issues
not addressed become more important, or new assumptions are
warranted, then a reevaluation should be undertaken. The likelihood
of change occurring increases with time.
Key Findings. The following are the key findings of this study:
1. Convenience -Oriented Retail Area. Lansing Principal
Shopping District is currently shopped as a convenience area.
Patrons of downtown Lansing use the area for shopping,
restaurants, and services because it is located close to their
home or business. This convenience orientation limits the
trade area extent of the downtown area and results in a high
leakage of dollars to other shopping areas.
2. Limited Retail Destination Orientation. With some
exceptions, there are limited destination retailers, restaurants,
or services in the downtown Lansing study area. While the
strong core of entertainment facilities located east of the Grand
River continues to generate traffic within the Entertainment
District, the traffic does not currently spill over to either the
Capitol District or Old Town District.
3-3 March 1999
3. Potential of Additional Businesses. Downtown Lansing is
capturing only a small portion of its market potential with the
current tenant mix. As such, there is potential to convert
current non -shoppers of downtown Lansing to shoppers.
4. Unfavorable Trade Area Demographic Characteristics. The
demographic characteristics of the current residents in the
primary trade area served by downtown Lansing are
unfavorable, limiting the amount of additional supportable
retail in the study area. However, future housing construction,
daytime employment, tourists, students and Lansing area
residents from outside the defined trade area will help to
support additional retail.
5. Room for Retail Growth. The study area, as defined by the
City of Lansing, offers room for future retail growth throughout
the study area. In particular, the Old Town District offers
potential for the growth of both incubator businesses as well as
convenience -oriented services.
6. Strong Competition in Neighboring Trade Areas. The study
area has strong retail competition surrounding the trade area,
limiting the potential for competitive growth within the study
area.
Conclusions
Recommended Additional Retail Space
Central Lansing, as it exists, currently offers approximately 125,500
square feet of retail space (sales.area). However, the existing tenant
Mix offers primarily convenience -oriented goods and services. As
such, the core of Lansing's downtown has no "hub" of destination
tenants to attract shoppers.
While the demographic characteristics of the residents currently living
in the,primary trade area limit the potential for future retail growth
throughout the study area, future residential housing, daytime worker
population, as well as tourist, college students and Lansing area
residents from beyond the defined trade area help to support the
potential for additional retail. Recommended additional retail space
for the downtown Lansing study area is outlined in Tablet in the
following section.
3-4 March 1999
is
is
Conclusions
❖Study area offers approximately
125,500 sq. ft. of retail space
•.•58,500 additional sq. ft. are
supportable
O-Some existing tenants need to be
upgraded or converted to increase
variety of retail options
•
The proposed added retail space can be obtained by new
construction, converting existing unused space to retail space
(possibly the second floor in some areas), or by converting existing
office space to retail space.
Some existing retail, especially restaurants and used -merchandise
stores should be either upgraded or converted to offer expanded
variety in the downtown area. While this would not be additional
retail space, the converted space would add additional retail options
to the current retail inventory. Further, retail replacing the existing
vacant space intended for retail is not included in the additional
recommended retail space.
With the expanded tenant mix, downtown Lansing will become more
effective in serving the existing residential base and current retail
users. The recommended additional retail in the Old Town District,
in particular, would further the residential development in the area to
support additional retail in the future.
Other Uses Recommended
In addition to the recommended retail space, The following "other"
uses are supportable in the downtown Lansing study area:
Is
1. Quality Limited Service Motel. Currently the only motel/hotel
Other Uses Recommended
option in downtown Lansing is the existing Radisson on Grand
•:•Quality Limited Service Motel
Avenue. This hotel is a full -service hotel featuring a restaurant
and bar and fulfills a needed role in the downtown area.
•:•Residential
However, those not wanting or needing a full -service hotel
must stay outside of the downtown area. A limited -service
•:•Professional Offices
motel, such as the Courtyard by Marriott, Hampton Inn or
Comfort Suites would offer an option to those visiting the
4-High Technology Park
Lansing area to stay downtown, near the State Capitol,
museums, ballpark and Federal/State Court buildings.
We do not, however, recommend a lower -end motel, such as
Red Roof Inn, Motel 6 or Budgetel.
Typically hotels have developed with a "herd mentality", or
where one unit locates, so will the competition. As a result,
Lansing has ended up with two major hotel "hubs", at
Interstate 96 and Okemos Road, to the east and the other to
the west at Saginaw and Interstate 96. Recently, however,
hotel chains such as Marriott Courtyard and Hampton Inn have
recognized the untapped potential in urban locations and have
started building in these areas.
•
3-5 March 1999
2. Residential. The development and acceptance of residential .
growth in the Old Town District, as well as on the periphery of
the study area have demonstrated a market for housing within
central Lansing. The recommended retail and services (such as
the grocery store near Lansing Community College in the
Capitol District and the drug store in the Old Town District)
will help support this new residential development.
Further, having these services existing in the area will be
beneficial to additional residential development, especially
north of the Entertainment District, in the Old Town District,
west of the Lansing Community College and along the Grand
River.
As such, up to 200 single-family detached households and
1,000 multi -family attached housing units are supportable
within the study area in addition to existing neighborhoods
within and adjacent to the study area.
3. Professional Offices. Plans are underway for the development
of new offices for the State Legislature on Capitol Avenue.
These new offices will replace some existing offices, creating a
need for the development of additional "Class A & B" office
space in the Capitol District.
Further, the area in the southwest portion of the study area
bounded by Kalamazoo Street to the north, Washington
Avenue to the east, 1-496 to the south and Pine Street to the
west has developed into small professional offices, particularly
for those organizations and businesses wanting to be located
near the State Capitol for lobbying purposes. The easy access
to Interstate 496 and the State Capitol offices lend support to
this use, and should continue to be developed as such.
The construction of the State Circuit Courts in this area should
aid in the further development of the area.
4. High Technology Park. The combination of the Lansing
Community College, and the location of the General Motors
plant on the southern periphery of the trade area and Sparrow
Hospital in the eastern periphery of the trade area lends
support to the development of a High Technology Park within
the study area. Such a development would best be located
either south of Kalamazoo Street near General Motors, or south
of Michigan Avenue near the Lansing Center.
3-6 March 1999
Ll
0
•
Tenant Type Rationale
twig
N NW
Additional
Recommended
Category
Retail Space*
Comments:
Apparel
Women's
9,000
Mid -range income and business
appeal.
Shoes & Accessories
1,500
Mid -range and/or specialty shoes.
Food &
Restaurants (with adult
4,000 sq. ft. to be located in the
Specialty
beverages)
Old Town District, 2,000 sq. ft. in
Food
8,500
the Capitol District and 2,500
square feet in the Entertainment
District.
Restaurants (without
6,000 sq. ft. in the Old Town
adult beverages)
8,000
District and 2,000 additional sq. ft.
in the Capitol District.
Grocery/Specialty Food
10,000
Grocery store to be located on the
Stores
west side of the Capitol District.
Other Retail
Art Galleries
4,500
3-4 local artisans to be located in
& Services:
the Old Town District.
Books & Music
1,250
Used record/book store in Old
Town District.
Drug
Drug store with strong
Store/Pharmaceutical
9,000
convenience appeal to be located
in Old Town District.
Furniture Store
1,000 sq. ft. futon store and 2,000
3,000
sq. ft. of antique furniture located
in the Old Town District.
Home Furnishings
3,000
Unique home furnishings in the
Old Town District.
Pet Supply
750
Small pet store in the Old Town
District.
Total Retail Space*
24,500 sq. ft. Capitol District
58,500
31,500 sq. ft. Old Town District
2,500 sq. ft. Entertainment
District
* Added Retail Space refers to sales area of retail space
Apparel Tenants: There is sufficient market potential to support
10,500 square feet of additional apparel, shoes and accessories in the
Capitol District of the City of Lansing.
Most of the recommended space (9,000 square feet) is for additional
mid -range and business women's apparel. The remaining 1,500
square feet is recommended as a specialty or mid -range shoe store.
3-7 March 1999
Currently there is approximately 11,900 square feet of apparel retail
space offered in the defined Lansing study area. Of this, most space
is evenly divided between women's and men's apparel (3,250 and
3,000 square feet, respectively), with 3,150 square feet of jewelry and
2,500 square feet of shoes and accessories. There is currently no
children's or infants' wear in the study area.
The apparel tenants should primarily be quality, moderately priced
retailers, offering a wide appeal of apparel style and/or business attire.
The retailers should offer good service levels, especially during the
lunch hour, to entice the daytime employees in the area to shop and
should be open after work. Delivery of the purchases to the
downtown offices or parking garages would be an additional
enticement to cater to the local business worker. The proposed mix of
apparel tenants is a closer mix to the typical mix of retail generally
desired by consumers.
The trade area has approximately 13,300 women ages 18 or higher
with very limited competition. The daytime employment of over
28,000 persons within a tight geographical area is a strong advantage
for the recommended apparel tenants. Finally, the local colleges and
tourists visiting the area also increases the expenditure potential for
the recommended apparel tenants.
The recommended mix of apparel retailers would face competition
primarily from the Lansing Mall, East Lansing Business District and
the apparel retailers found in the Frandor Shopping Center.
Additionally, other apparel competition to the proposed apparel
retailers would be offered (albeit from a much lesser degree, due to
distance and the mix of apparel retailers) from the Meridian Mall and
the surrounding discount freestanding department stores surrounding
the mall to the south.
Food and Specialty Food Stores: There is sufficient market potential
to support 16,500 square feet of additional restaurants and a 10,000
square foot grocery store in the Lansing study area. Of this 16,500
square feet of restaurant space, we recommend that:
❖ The Old Town District should have 4,000 square feet (2
restaurants) of restaurant space offering alcoholic beverages
and 6,000 square feet (3-4 restaurants including a coffee house
offering evening entertainment) without alcohol beverages, for
a total of 10,000 square feet.
3-8 March 1999
Additional specialty food stores ar
supportable in central Lansing I*
•
•
•
❖ We recommend the Capitol District add 2,000 square feet
each of restaurants with and without alcohol, as well as a
10,000 square foot grocery store, for a total of 14,000 square
feet.
❖ Finally, we recommend that the Entertainment District offer an
additional 2,500 square feet of restaurant space (one
restaurant) with alcoholic beverages.
Several of the restaurants (without alcohol) in the Capitol District
should be upgraded to offer a wider variety of cuisine in the
downtown area, to entice office workers to patronize the new
businesses more often.
Currently, the defined study area offers approximately 43,450 square
feet of restaurant space. Of this, the majority (19,900 square feet) is
located in the Capitol District, 12,950 square feet is located in the
Entertainment District, and the remaining 10,600 square feet is
located in the Old Town District. However, the appeal of the
restaurants in these districts are quite different. Those located in the
Capitol District are geared primarily to serve during the lunch hour,
while those in the Entertainment District, and too a lesser extent in
the Old Town area; are more traditional in appeal and in hours of
operation.
Restaurant space should complement, not compete with the existing
restaurants. As such, the new space should be devoted to a wider
variety of ethnic foods, or to offering a different atmosphere than is
currently found in the adjoining area. The younger trade area
residents and the smaller household size are demographics which are
favorable for the recommended restaurant space. The core of
downtown workers, students and tourists have a limited variety of
options currently available, especially in the Old Town District, and
to a lesser extent in the Capitol District. The expanded variety of food
alternates will increase the strength of the existing restaurants by
increasing the variety found and encouraging the residential,
employee, tourist and student base of consumers to patronize the
restaurants more often.
The proposed grocery store should be located in the Capitol District,
near the Lansing Community College and the state buildings to
primarily serve those residents currently living in the western portion
of the study area and the adjoining community. As parking will be a
major concern of the new grocery store, it is recommended that the
new store be located near an existing transit stop, increasing the
ability of the trade area residents to reach the store without having to-
3-9 March 1999
use a car. It is also recommended that in addition to a wide variety of
canned and dry grocery goods, the store should offer a full variety of
fresh meats, bakery, produce and deli items, as well as expanded
services such as delivery to the offices and to the nearby apartment
buildings.
There is currently no full -line grocery store in the study area that
carries a full assortment of dry groceries, meats, produce, dairy and
frozen food products. However, the trade area offers several specialty
food retailers and bakeries.
The lack of any existing full -line grocery store in the study area or on
the periphery with the population base in the trade area (25,695
persons) supports the need for a small full -line grocery store as
recommended. This store should offer a full assortment of staple
packaged grocery goods, frozen foods, dairy, produce and fresh
meats. Additionally, it should offer a full -service deli and bakery
department with a strong "meal replacement prepared foods"
selection. The location of the store near the Lansing Community
College and the state buildings, with the added delivery service
would increase the sales potential of the store. Finally, the location of
the store on the west side of the Capitol District, near the core of
study area's residential customers would help provide a needed
commercial hub of activity in the area.
Other Retail and Services: There is sufficient market potential to
support a total of 21,500 square feet of additional retail and services
in the Lansing study area .
We recommend that all of this additional retail be located in the Old
Town District to create the core of neighborhood business activity
needed to further the residential growth and firmly establish the
unique identity already begun in the district. The following is our
rationale for each of our recommendations:
Art Galleries: There is sufficient market potential to support an
additional 4,500 square feet of local art galleries and incubator
businesses.
Currently, there are approximately 2,250 square feet of art galleries in
the Old Town District. While these are generally of high quality and
offer unique products, the amount of space offered is not substantial
enough to create a destination "hub" or to encourage comparison
shopping. The additional square footage of galleries would help the
existing galleries by expanding the consumer base that would be
attracted to the area, as well as encourage additional residential
3-10 March 1999
•
development. Further, mixed in with the galleries, other retail such as
restaurants and coffee shops would encourage leisurely shopping, and
would benefit all commercial uses in the district.
Books and Music: There is sufficient market potential to support a
1,250 square foot book and music store in the Old Town District.
Currently, in the Old Town District there is a book store offering a
wide selection of gay and lesbian -oriented books, music and videos.
Additionally, there is a music store offering the largest variety of
sheet music in the state of Michigan. While both have a loyal
following throughout the Lansing area, the appeal of each of the units
is limited, especially to the existing trade area's residents. As such,
the proposed store would offer a broader appeal to the area, as well
as cater to the younger trade area households.
Drug/Pharmaceutical Store: There is sufficient market potential to
support a 9,000 square foot drug store offering a variety of
convenience and basic grocery store items.
Currently the Old Town neighborhood has no major drugstore or
store to purchase staple grocery items. The recommended unit would
help to satisfy this basic need until residential growth in the area can
support a neighborhood supermarket.
The Old Town District has an appeal enhanced by the routing of
major trucks and through -traffic to the north via Grand River Avenue.
Further, the area is delimited to the south by the volume of traffic
along Saginaw Avenue. A neighborhood drug store, as proposed,
would serve the area residents, and aid in the future development of
the area.
Furniture and Home Furnishings: There is sufficient market potential
to support an additional 6,000 square feet of furniture and home
furnishings retail space in the Old Town District.
We recommend a 1,000 square foot futon store, 2,000 square feet be
devoted to antique/refurbished furniture, and 3,000 square feet of
unique household furnishings. Further, we recommend that as the
neighborhood develops, the existing used merchandise stores in the
Old Town District be upgraded to offer better product lines to further
encourage comparison shopping.
3-11 March 1999
Currently, the Old Town District offers several used merchandise
stores, as well as a used furniture store that offers some pieces that
have been refurbished. The additional stores recommended would
increase the size of the retail hub in the area, as well as enhance the
current offerings. As the Old Town District develops, the retailers
will be able to capitalize on the growth and renovation of nearby
housing, as well as the expanded trade area which will pull
consumers from the entire Lansing market. Finally, the proposed
furniture and home furnishings stores will complement the proposed
art galleries and recommended restaurants.
Pet Store: Finally, there is sufficient market potential to support a
small (750 square feet) pet store offering a variety of pet supplies and
services such as grooming.
Currently, there is no major pet supply store in the Old Town District,
as such the unit would be unique to the area. The smaller household
sizes in the trade area, as well as the younger trade area residents are
favorable demographics for a pet store, especially one offering a
variety of services such as grooming and boarding. The pet store
should encourage the customers to walk-in with their pets, as to
encourage pedestrian traffic in the area.
Trade Area and Market Characteristics 0
Trade Area
The primary trade area for the defined study area extends north to
Jackson and Bates Streets, east to Bancroft Park and Regent Street,
south to Grand River Avenue and west to Logan Street. The trade
area is rather limited in distance, and is delineated by the listed
factors.
Access
Regional access to the study area is very good as provided by
Interstate 496 on the southern periphery of the Study area. Regional
access could be significantly improved, however, via better signage.
The existing signage tends to route visitors to the area via "The
Capitol Loop", which diverts traffic around, rather than through the
study area.
Local access to the study area is good via Saginaw Street, Michigan
Avenue and Kalamazoo Street (east and west) and
Capitol/Washington and Larch/Cedar Streets (north and south). Most
of these thoroughfares are one-way, and Lansing area residents
familiar with the area appear to have no trouble traveling through the
study area. Those unfamiliar with the road network, however, have a
3-12 March 1999
more difficult time due to the lack of sufficient signage. The re-
introduction of two-way streets and other circulation
recommendations contained in this plan would ease travel through
the downtown area, as well as slow the traffic down to make the
Capitol and Entertainment Districts, in particular, more pedestrian
friendly.
Further, the three defined districts of the trade area all have significant
Trade Area Delineations
boundaries separating them. The Capitol District and a larger portion
•
.• Physical barriers (C&O
of the Entertainment District are separated by the Grand River,
Railroad tracks) and retail
however, the pedestrian walkway and Michigan Avenue provide easy
gravitation to the north.
passage from one district to the other. The local transit authority as
well as a "people mover" provided by The Blue Coyote Brew Pub
•:• Retail gravitation toward
provide additional methods of traveling between the two areas. Old
the east (East Lansing and
Town, however, is separated from the Capitol District and
Meridian Mall).
Entertainment District by the heavy traffic on Saginaw Street, as well
as the residential area (north of Saginaw Street) and Lansing
0- Physical barriers (the
Grand River and Interstate
Community College (south of Saginaw). The riverwalk along the
496) to the south.
Grand River attempts to link the three districts, however, its use is
limited. Additional connections between the districts are essential.
Psychological barriers
(demographics) and retail Parking
gravitation to the west Metered on -street parking, parking lots with meters, unmetered
private parking lots and parking decks are located in the City.
Generally speaking, the structures are strategically placed throughout
the Capitol District. However, most of the structures need better
lighting and additional signage to denote where the structures are
located and the location of the entrances to the structures.
maps_inside_the structures or signage noting directions
to key retailers would be helpful: -_
•
Parking in the Entertainment District is provided by the parking
structures in the Capitol District and the Lansing Center, as well as
metered parking on the streets and some unmetered parking lots. As
such, parking is adequate, due to the ease of traversing the Grand
River via the pedestrian/walkway and Michigan Avenue.
Parking in the Old Town District is primarily limited to on -street
parking or several open parking lots. Currently, the parking meets the
minimal requirements, however, given the additional retail
recommended in the area, additional parking will be needed.
3-13 March 1999
Competition
Regional shopping center competition to the Lansing study area is
most direct from the Lansing Mall (Map Code R1), located on
Saginaw Highway, between Elmwood Road and Garfield Avenue,
northwest of downtown. The Lansing metro -area also has an
additional mall located in Okemos (Map Code R2 to the northeast),
which primarily serves the eastern Lansing market. The Lansing Mall
offers 860,200 square feet of retail, and is anchored by Hudson's,
)CPenney, Mervyn's and Montgomery Ward. The Meridian Mall in
Okemos offers 800,000 square feet of retail spaces and is anchored
Hudson's, )CPenney and Mervyn's.
The only other identified department store in the greater Lansing
market is Jacobson's, which is located north of Michigan State
University in East Lansing (Map Code B1). The store anchors a retail
district offering approximately 235,000 square feet of retail space.
Much of the retail in this area caters to the university students, with
unisex apparel, fast food eateries and cafes, coffee shops and
bookstores.
In addition to the regional mall competition, the Lansing study area
also faces shopping center competition primarily from the Frandor
Shopping Center to the east (Map Code C5), the Edgewood Towne
Center shopping center (Map Code C8) to the south, and the Waverly
Shopping Center (Map Code C6) and Dornet Village Shopping Center
3-14 March 1999
Ll
•
•
F Ib.0 y
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NDARY
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R.G.
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� ~�`3« ' YF�•�rrr>_+au ,ol ,d.c�LJ ���-5� A'..•r'p i, � ^�', ,.,. ! �, i.. �.: a-lA I oa.. � / c ; ` - � '♦
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PINE Yp.,,rt
\2r j a O R:Or' DELL DIi < Ror REOLE WAY COMPETITION:
!I" 8 •I G B `�' < I LO-G1S0 .. -, ELLS TR. y
L N ]Qf} c i_f w R "r --DiLL _ r g
TRUMRUL �Ua ° N _ 1G ,SA [i0� �t " EA SWAY �'
Lo oa "�•�� - "Q � 3 A Rlli REGIONAL SHOPPING CENTER COMPETITION
Z Z "' MORE •e� N eP ?o�Axso sT 1 fO E • BUSINESS SHOPPING DISTRICT
i DADSOX �¢4\l(DALE V aU,vey� r's, i GON IGN o owAv..wr
R•f..u. .r JUST- . U 1 2 f RE OR
,yC� s° < x! / y RDING wILL o 50� s COMMUNITY &NEIGHBORHOOD SHOPPING CENTER COMPETITION
MAJOR FREESTANDING COMPETITION
• PETITION 2/98
tY • J ' �' I m i ,1A EN Act[SY OF NTFL
HT
IPONr w. nu! 'J _ _MLA&GARDENS LA
o.x LomIN g`t' jc°onu F N W Mpl, I g Please see Competitive Profile for details.
(Map Codes C2 and C3) to the west. "Big -box" competitors and
additional discount departments stores are located near the Lansing
Mall to the west, the Meridian Mall to the east, and along Cedar
Street to the south.
Please refer to the competitive profiles located in Appendix 1 in the
separate appendix documents and the Study Area, Trade Area, and
competition map for more detailed information concerning the
shopping center competition and their exact locations.
Market Characteristics
Trade Area Residential For ease in reporting demographics, we have divided the
Characteristics demographics into residential and non-resident patron segments. For
complete demographic profiles for the resident and worker
•:•25,695 Residents population, please refer to Appendix 3.
0,61.5% White Residential Characteristics
•:•10,550 Households Within the defined trade area for the Lansing study area, there are
approximately 25,695 persons. This population base is expected to
d•2.39Average Persons Per decrease slightly (0.1 %) to 25,681 persons by the year 2002. The
Household majority of the trade area is white (61.5%), with African American
being the next largest race (23.2%). The median age of the
83% of Households Have Children population is 29, which is 7% younger than Ingham County and 22%
0 1 younger than found in the State of Michigan.
•
There are 10,550 households within the defined trade area. This
household base is expected to decline slightly to 10,242 households
by 2002. The average persons per household is 2.39 for the trade
area, 2.55 for Ingham County and 2.66 for the State of Michigan.
Approximately 33% of the households have children, as compared to
35% in Ingham County and 39% in the State of Michigan.
The median household income for the trade area is $23,083, which is
42% lower than Ingham County ($39,537) and the State of Michigan
($40,067). Only 20.7% of the households within the trade area have
median household incomes or $50,000 or higher, as compared to
37.8% and 38.7% for Ingham County and the State of Michigan,
respectively. Less than 5% of the trade area population have median
household incomes higher than $100,000.
Please refer to the population and demographic reports in Appendix 2
for further detail.
3-17 March 1999
•
Non -Resident Patron Segment Characteristics
Worker Characteristics. The City of Lansing has a total of 1,166 4- 45 %shopped during the work day.
businesses, which employ approximately 28,169 employees. Most of III% shopped at lunch time.
the businesses are in the service sector (42%), with 27% government 043%ate lunch outside oftheir office
businesses and 15% retail. However, more people are employed in building.
the government sector (40%) followed by 28% in service positions IMean expenditure on apparel and
and 13% employed in the construction industry. accessories was $54.30.
Please refer to the appendix for an exact breakdown by business type I Mean expenditure for lunch was $5.20.
for the defined Lansing study area. 00 1,166 Businesses
According to a survey of office workers' shopping behavior conducted 00 28,169 Employees
in 1987 by the International Council of Shopping Centers (ICSC), 0 Additional $1,022,143 in expenditure
workers with ample retail in the downtown area exhibited the potential
behavior listed in the margin.
A study currently underway.to update the 1987 study has validated
most of these results. Early results have noted a 42% decline in the
mean apparel expenditure (to $31.50), with an 11 % increase in the
mean expenditure for lunch (to $5.77). Using the updated, revised
mean expenditures, the City's increased expenditure potential from
the worker segment would be an additional $1 f022,143.
Other Non -Resident Segments: According to an intercept survey
taken and provided by the City of Lansing and the City of Lansing's
Principal Shopping District, the daytime worker population comprises
71 % of those currently using the study area. Additional major market
segments include:
00 Tourists add $217,206 to study area's
❖ Tourists visiting the area from outside the Lansing metro area. potential
0 Metro Lansing shoppers add $19,471 to
Tourists typically spend the highest amount per person study area's potential
($66.54) of all the non-resident patron segments. As such, they 00 College students add $289,698 to study
offer an additional $211,206 to the study area's potential. area's potential
❖ Metro Lansing shoppers from within the Lansing Metro area,
but beyond the defined trade area.
Shoppers visiting the study area from beyond the trade area
offer the smallest addition to the study area's potential
($19,471).
•
3-18 March 1999
•
•
❖ College students from Lansing Community College and Cooley
Law School are part of the non-resident segment. The college
students have the largest segment, but spend the least amount
($18.22 per person).
However, due to the size of the segment,they still offer an additional
$289,698 of expenditure potential to the study area.
Worker Comparison. The table compares the number and types of
worker base in downtown Lansing to Ann Arbor, Michigan, which has
a changing downtown and to other midwestern capitol cities with
thriving downtowns. While the city of Ann Arbor has the closest
comparison to the daytime -worker segment to the city of Lansing,
with slightly more businesses (1,490 as compared to 1,166), but fewer
overall workers (17,102 compared to 28,169). However, the city of
Ann Arbor has a much more consolidated downtown area, and is
supported by the University of Michigan, which is located outside the
defined downtown, but right on the periphery. The University of
Michigan currently has 37,000 students registered (compared to
15,900 at Lansing Community College) with nearly 50% living off
campus in private resident housing. As such, Ann Arbor has a higher
close -in residential base.
:;ti}:•:}Sii:ti:?�$iiiiiii:i,$•:
{tiff:::::+:�::
■yy�.1a JF
4Y. :v} y+ H` i vh ...<{. Y.. � ' .... 4... } ..n+•:.9:{:i:C�}}:::: } �:•:i ....... f.: i}}:•}riri4:::•:::i.
Y' iS•..\ :y }:'t:
DOWNTOWN
LANSING
ANN ARBOR MADISON COLUMBUS
INDIANAPOLIS
Number of 1,166
1,490 2,559 3,898
3,085
Businesses
Number of 28,169
17,102 54,351 107,010
84,948
Workers
Type of Workers:
Retail Trade 7% (1,863)
31 % 11 % 9%
8%
Financelinsurance 6*/ (1,561)
10% 10% 24%
19 %
/Real Estate
Services 28%* (7,828)
36% 26% 34%
27%
Government 40%
12 % 44% 20%
18%
(11,227)
Other 19%*
11% 9% 13%
28%
(5,690)
* Most workers classified as 'other" in downtown Lansing are employed in construction and manufacturing.
When compared to other state capitol cities with strong downtowns,
Madison, Wisconsin offers the closest worker base, both size and type
of worker, to the City of Lansing. However, Madison has more than
3-19 March 1999
twice the number of businesses (2,559 compared to 1,166) and more
than 26,000 more workers (54,357 as compared to 28,169). As such,
Madison has a much stronger work force to support the area's retail
base.
•
3-20 March 1999
r�
•
5 MINUTE WALK
•
Section IV
Central Lansing
Development Plan
Future Land Use Concept- - -
The general concept for the future land use of the study area is
illustrated in the Final Land Use Concept Plan. The plan concentrates
on designating three primary activity centers for development which
consist of the Old Town District, Entertainment District, and the
Capitol District. To accomplish this goal the concept plan also
proposes improving linkages between these areas and around the
study area and defining surrounding neighborhoods which will serve
the activity centers. Specific land use designations, circulation
recommendations and community design concepts are contained
further in this Section of the document.
Bounded by Washington Avenue and Cedar Street along Grand River
Avenue, Old Town should maintain the existing niche of specialty
retail with additional conveniences. The Entertainment District
should be the location for any type of large scale destination
consistent with Oldsmobile Park, the Lansing Center and the City
Market. The Capitol District consists primarily of office use with
supportive retail along Washington Avenue. Improving Washington
Avenue, encouraging upper story residential use and generating more
business and activity will enhance the area overall.
Traditional neighborhood design standards dictate that an area which
is considered "walkable" provides a concentration of all necessary
amenities and services such as park and recreation areas, a library and
commercial centers within a five minute walk. The concept plan
delineates the Five Minute Walk Circles to help illustrate the
walkability and desired concentration of use within the three main
activity centers. Each district is generally walkable, however, the key
issues are intensifying activity within each district and connecting
these districts.
Cross use between activity centers and land uses must be established
in order to remain vital. The most feasible and logical method to
accomplish this is promotion of the existing public transit system.
The land use recommendations are some what based on the concept
of transit -oriented design. However, to optimize the success of
central Lansing other methods must be available to workers, residents
4-1 March 1999
and customers. One method conveyed in the concept plan is
overlapping the Capitol District with the Entertainment District to
encourage use of the facilities provided in both areas and to reinforce
linkages to the river. Though it is simple to encourage interaction
between the Capitol District and the Entertainment District, the Old
Town District is somewhat removed. Attempts must be made to
connect Old Town with the rest of the study area. The Concept Plan
shows locations for a trolley link which could be provided to move
people along the river and between the districts.
The River Trail may also serve this purpose through increased
connections and enhancement of the existing network. Water taxis
and tour boats on the river would provide activity along the river, a
linkage between river destinations, and an opportunity to have fun on
the water. Locks would have to be introduced to make the dam
passable for water access north of the fish ladder. Finally, circulation
recommendations will serve the purpose of improving connections
between the districts.
The most logical and direct connection between the Old Town
District and the Capitol District is Washington Avenue. While
controversial, Washington Avenue should be opened from Michigan
Avenue north to Saginaw Street. Currently the Lansing Community
College campus is physically separate from central Lansing by design.
Opening the campus will connect it to central Lansing, physically and
psychologically. Encouraging students to explore central Lansing will
provide additional energy to the area.
Uses proposed in the transitional areas between activity centers
support and strengthen the vitality of the activity centers.
Organization of the transitional areas should help define a clear
purpose and character which complements the adjacent activity
center. The Concept Plan establishes either actual neighborhoods or
specific land use designations to serve as an organizing element for
these areas.
The residential neighborhoods are laid out in a traditional grid pattern
and c6ntain a variety of housing types and a mixture of uses.
Diversity of residents and income levels should be encouraged. It is
important that streets continue to serve the needs both of the
pedestrian and automobile. The interaction between uses and the
street must be encouraged. Vacant land and vacant buildings should
be utilized. Parking should be integrated into the built environment
and enhanced with landscaping. Large surface parking lots should be
discouraged in favor of smaller lots with less visual impact.
4-2 March 1999
•
0
0
FINAL
LAND USE
CONCEPT
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
OLD TOWN'
VILLAGE
= I
JOLD TOWN I GATEWA
COMMER(
I
WASHINGTON,
WILLAGE
=HIGH
�, a) LIGHT
I INDU:
v :RIVEI I' W
NEIGHBORHOODS
il;_ n ..:!I. I TROLLEY
LANSING COMMUNITY LINK
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ITORY a
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u El HISTORIC I GROCERY.,
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MARRKKET�.-' ,
❑ CAPITOL ENTER TAINMEN _
SERVICES DISTRICT '
POTENTIA �''3 �Cf,Z/
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■ A S S O C I A T E S, I N C. �4 i
COM7IUMTY PLANNING • URBAN DESIGN t
600 0 600 1200 Feet
5/9B
Pl, PARCEL LINES
/ V ROW LINES
® GRAND RIVER
CAPITOL I - .
SERVICES CHERRY
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JEIGHBORH
The remaining categories; Capitol Services, Gateway Commercial,
Commerce Park, and High Tech/Light Industrial will serve to guide
transitional development in areas which are more appropriate for a
non-residential or mixed use focus. Their close relationship with
downtown residential neighborhoods should work to enhance the
overall environment of the study area.
Future Land Use Plan
The goals of a plan are essentially the underlying principles
considered throughout the planning process. These visions must be
integrated into every section of a plan in order for it to be supported
and implemented by the community. The future land use map speaks
to a majority of the goals established by the City. The remaining
goals are applied in the circulation and community design
components of the document.
In order to concentrate land uses in central Lansing, three main
activity nodes were delineated. The Entertainment District
creates a strong arts, cultural and entertainment base near the baseball
stadium and convention center along Michigan Avenue. New retail
and residential development will be promoted in the Old Town
District. The Capitol District is established to focus on strengthening
existing commercial activity as well as the employment base of the
area. Potential locations for new amenities have also been identified
within these districts such as a performing and visual arts center,
museums, River Trail linkages and a trolley connection between the
districts.
Clarifying central Lansing as a small collection of districts, or activity
centers, defines not only the unique characteristics of Lansing but also
influences the long-term conservation and enhancement of the
neighborhoods. Looking at the central area as a series of activity
centers also will organize and define the special elements that
comprise the overall community.
As described in the market analysis the commercial development
which,,these districts are able to accommodate will not be possible
without nearby residential markets to support it.
The Plan addresses the need to preserve and establish residential
neighborhoods, by carefully selecting residential areas which are
feasible for investment and are in desirable locations. The Plan
encourages the mixture of commercial and residential uses in all areas
of central Lansing. The dichotomy between preserving the historic
neighborhoods and the recommendation for a mixture of commercial
and residential uses is noted. With careful planning confined to
4-4 March 1999
•:• Form strong,
concentrated land use
nodes to guide future
development and
redevelopment in
central Lansing
❖Promote a residential
base which plays a key role
in contributing to the
vitality of central Lansing
and which generates
energy for the area
❖ Recognize and
preserve the integrity of
the residential
neighborhoods adjacent
to activity centers
4-Adaptive reuse involves
incorporating an existing
condition, specifically a
structure, and redeveloping it
into a new, more appropriate
use for the area
❖ Design and promote
linkages between the
various land use nodes and
the surrounding
neighborhoods
❖Establish visual gateways
into central Lansing
representing the vitality,
excitement and beauty of
the central area
❖Integrate the Grand River
as an essential component
of the central Lansing
experience for visitors,
residents, customers, and
employees
the appropriate areas both goals can be met.
•
Due to current conditions and existing land use in central Lansing, the
concept of adaptive reuse must be explored. Many existing industrial
or commercial buildings could be superb for reuse as condominium
or apartment dwellings. This type of construction often lowers the
costs of development and increases the character of an area.
Articulating the boundaries of the non-residential areas will not only
provide a critical mass of activity, it will facilitate the stabilization of
existing residential areas. Without the threat of unwanted land use
encroachment, the community may focus on beautifying and
enhancing existing residential neighborhoods.
Physical connections are primarily a design component, so the future
land use plan may also serve as a guide to decision making regarding
the desired location of these connections. The plan concentrates on
linkages between the residential areas and the major development
nodes through an expanded greenway system along the Grand River.
The opening of Washington Avenue for pedestrian, bicycle, and
transit from the Old Town District through Lansing Community
College and the Capitol District will provide an unbroken link
through central Lansing that continues down to the commercial
district in the Riverpoint Neighborhood.
Access to the River Trail is currently limited. By providing more
connections, the River Trail can become an important avenue for
pedestrian circulation. This will become extremely important as new
development occurs in the City. It is intended that future
development projects will incorporate these connections into site
layout.
Architectural and design guidelines can be adopted and implemented
which will help each activity district develop a distinct character.
Designating gateway commercial areas and requiring quality site
design for these sites will also support the improvement of visual
gateways into central Lansing. Finally, the high technology/light
industrial development will allow for high intensity uses to be
maintained in this area but at a higher level of quality.
The community design plan will focus on improving the design and
appearance along the River Trail as well as physical and visual
connections to adjacent uses. Future land use designations address
this issue as well. Residential development along the river ensures
uses in the future which will appreciate the asset of riverfront
property. Extending the Entertainment District closer to Washington
Square and the Capitol District promotes the integration of the river
4-5 March 599
and the uses in these districts as opposed to maintaining the river as a
bisecting element of the central area.
Future Land Use Map
The future land use map serves to translate the plan goals outlined in
Section I into a narrative and graphic illustration. It is derived from
existing land use patterns, the market analysis, transportation network,
the concept described above and ambitious future visions for certain
areas of central Lansing. It is to be used as a generalized guide to the
location of growth and development. The Land Use Plan Map is not
intended to serve as a zoning map nor does it dictate the individual
parcels of property. In some areas, more detailed analysis may be
necessary to fully determine the feasibility, specific layout and use of
certain sites.
The following is a description of the land use categories found on the
Future Land Use Map.
Low/Moderate Density Residential
These residential areas are planned to be 11 units per acre or less.
Though some non-residential uses may be permitted, development
will typically consist of detached single family homes on about 4,000
to 8,000 square foot lots. Infill duplexes and townhouses that
complement the existing single family character would also be
appropriate in these areas. Low density residential is planned in
areas currently considered transitional between major activity centers.
Residential type development in these areas will help to stabilize
existing neighborhoods and create an opportunity to capitalize on the
Grand River. Low Density Residential is proposed in clusters and
blocks facing each other to establish traditional neighborhood
character for the area.
Mixed Use/Medium Density Residential
These areas are planned for central business district support services,
neighborhood support services and residential densities at
approximately 12 to 20 dwelling units per acre. Residential
development will generally consist of preservation of existing
detached single family dwellings, but primarily townhouse style
development mixed with some apartments over first floor
commercial. Buildings in these areas should be a maximum of three
stories and provide walk-up entryways. The introduction of a mixture
of uses within buildings may be permitted in these areas as well. For
example, a residential complex which provides nearby convenience
goods or deli are possibilities for development.
Medium Density Residential Prototype
4-6 March 1999
FUTURE LAND
FUSE PLAN
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
q Low/Moderate Density Residential
Mixed Use/Medium Density Residential
C High Density Residential/Accessory Mixed Use
F—EF Low Density Residential/Ground Floor Business
E Capitol Area Business/Medium Density Residential
' High Technology/Light Industrial
G` Neighborhood Services
Gateway Commercial
Q Washington Square Commercial District
J Old Town District
Entertainment District
Capitol District
®
LCC
,N
Greenway/Park Land
(�
Future Study Area
_ Grand River
/V Parcel Lines
A
August 20, 1998
600 0 600 1200 Feet
loThe labels above describe the
ominate use planned for each area but
cio not fully describe the Land Use Plan. Text
from the Central Lansing Comprehensive Plan
must be reviewed in conjunction with the map
to understand the full character and intent for
each land use category.
•
Encouraging a mixture of uses will also allow existing stable non-
residential uses in these areas to continue.
Commercial uses in this area should be a maximum of three stories
and should be architecturally compatible with medium density
residential uses. Site design should contribute to a pedestrian street
environment and use landscape to soften walls and paving. Industrial
uses and outdoor storage are not appropriate in this area because they
are not pedestrian in character, do not relate to an active river park,
and do not help link the three activity centers. A balance between
commercial and residential uses should be maintained. In particular,
the Riverfront neighborhood between Saginaw and Oakland requires
further attention in the form of a sub -area plan. These areas are
planned based on existing development and to serve as a buffer
between the low density areas and higher density uses.
High Density Residential/Accessory Mixed Use
The density planned for this land use category is approximately 20 or
more dwelling units per acre. Due to the higher density,
development will lend itself to low rise three or four story buildings.
Loft dwellings and industrial building conversions are encouraged in
this area or other adaptive reuse in addition to the traditional high
density residential type developments. Similar to the character of Old
Town, buildings may provide a mixture of uses such as apartments
above retail or office space. These areas will serve as transitional
areas between low density development and activity centers. High
density development is planned in areas with proximity to activity
centers and existing industrial or high density residential uses.
Low Density Residential/ Ground Floor Business
These areas provide a mixture of low density housing opportunities
with office or retail uses in the area. Many structures are homes
which have been converted to office use or are utilized for both
office/retail and residential use. Because, both are important to the
success of the area and both are acceptable uses adjacent to one
another this type of development may be maintained with specific
design and use guidelines.
Capitol Area Business/Medium Density Residential/
Similar to the above described designation, a mixture of residential
and office use is promoted in this area of central Lansing, but at a
higher density. As indicated in the market study the office uses which
desire easy access to the expressway and the State Capitol building
should continue to develop in this area. As was stated above,
professional offices are considered a non-residential use which
4-8 March 1999
Maintain Residential Character in Low Density
Residential/Ground Floor Business
has minimal negative impacts to any adjacent residential uses.
Therefore, the current mixture of residential, institutional, office and 0
central business district support uses should be maintained
accordingly. Surface parking should be minimized and enhanced.
Large surface parking lots should be broken up, parking should be in
the rear, and parking lot landscape should be required.
High Technology/ Light Industrial
Advances in industry and technology have created uses which are
related to industry and office uses, but may not be appropriate or
function adequately in a typical industrial or office zoning district.
These uses are not objectionable in terms of noise, heavy truck traffic,
fumes or similar characteristics. It is further intended that these light
industrial uses act as a transition between heavier industrial uses
outside the central area boundary and non -industrial uses within the
central area. Additionally, these uses are appropriate to assure quality
development.
Neighborhood Services
Because of the high traffic volumes along the major one way streets,
residential development is less desirable in this area. Traditionally,
neighborhood commercial uses have developed in these areas. This
includes all land and buildings where products, goods or services are
provided to service the residents of the immediate neighborhood
areas. Examples include, but are not limited to, local bakeries,
convenience shops, barber shops and hair salons. Uses in this area
should serve as the center of the neighborhood and are pedestrian
oriented. Therefore, they should be designed at a scale to serve the
pedestrian. Parking should be permitted only in side and rear yards,
with entrances oriented toward the street. These uses are smaller,
low traffic generating commercial services. This land use designation
is for the maintenance of the existing commercial clusters and is
planned to support the future residential growth in the City.
Gateway Commercial
These commercial areas are planned at major gateways into central
Lansing and the major activity centers. At the eastern entrance of
Old Town, Gateway Commercial will serve to transition industrial
uses into the quaint village area between Cedar Street and
Washington Avenue. South of the capitol District, these
developments will serve as a visual gateway into central Lansing from
the expressway. In both instances, these uses are lower density
commercial which provide off street parking areas and serve a larger
area than neighborhood services. Uses include, but are not
0
4-9 March 1999
limited to larger scale retail, restaurants, and gas stations. To
accomplish their purpose, sites must be well designed to project a
positive image entering into the activity centers. Parking areas are
encouraged to be located in side and rear yards and well screened.
The design of any new building should follow the lead of the newly
constructed CATA Transportation Center.
Washington Square Commercial
As the primary retail district located near the State Capitol, this area
serves as a common element between the entertainment and
business/retail uses in the southern portion of the study area. Uses in
this district should follow the recommendations of the market analysis
which indicates apparel, various restaurants and food shops are
necessary. Specialty food and retail shops should attract tourists and
generate interest. Development must be promoted which will utilize
existing structures and encourage workers and visitors to inhabit the
area. Ground floor uses should be retail with window displays and
cafe seating, upper floors should accommodate residential and or
office uses.
Entertainment District
Primarily located along Michigan Avenue, this district will formally
designate a location for large scale entertainment uses. The stadium
convention center, museums, possible expanded City Market, river
plaza, and if feasible, a performing arts center would all be
appropriate uses in this district. This will also allow for services such
as restaurants, parking, and a limited service hotel to support the
additional business the entertainment uses will require. The
boundaries were chosen based on existing uses, its prime location
along the river, and its gateway status leading into the Capitol District.
Its size reflects a five minute walking distance. To build upon the
relationship with the river, the district will overlap with the Capitol
District to prevent the river from creating a boundary line or barrier.
The river will be considered part of the entertainment provided to
patrons.
Old Town District
The Old Town District is an existing settlement area generally located
on Grand River Avenue where it intersects with Washington Avenue,
Turner Street and Center Street. As stated in the market analysis, Old
Town can support more art galleries, a furniture store, a books and
music shop, a drug store and pet store. A variety of restaurants would
also be very successful in Old Town. The character of the area would
consist of primarily street front retail, commercial, and upper level
office, studio, or residential uses. Parking and services should be
located in rear or side alleys. Street parking should be maximized
4-1 0 March 1999
Potential for upper level residential
use
Lansing Community College
Riverfront
Riverfront greenways should be
expanded
and surface parking minimized. Sidewalks should be wide enough to*
accommodate sidewalk cafe seating and occasional festivals. Street
trees and street furniture should be provided at the curb. The street
furniture zone and street parking serve as a buffer to protect
pedestrians from the street and traffic. Historic buildings should
remain as vital to the character of Old Town.
Capitol District
The largest of the activity districts, this area includes the state
complex and supportive retail and office uses. Washington Avenue is
the main street of this district which needs to serve as a destination
with various restaurants and retail shops for workers in the
downtown. Though much of the land is already developed, vacant
offices and buildings create substantial redevelopment potential in the
Capitol District. The Capitol District will develop in conjunction with
the Entertainment District which will eliminate the barrier of the
river, and generate more business for Washington Avenue later in the
evening. The historic buildings and character in this district should
be protected as vital to the character of Lansing.
Lansing Community College
This land use designation is the existing campus of the College which
serves approximately 15,900 students. The use is extremely stable
and an important asset to the community.' The primary objective
related to the campus is creating more connections and integration
with the fabric of the city. The opening of N. Washington Square to
pedestrian, bicycle, and transit will be an important step in
accomplishing this objective. Uses proposed in the main activity
centers and greenway connections will also strongly support this
concern.
G reenway
The areas designated for greenways in the future represent public
space which is used for a number of reasons. The most prevalent is
the planned greenway expansion which will provide a complete link
along both sides of the river. Other public spaces identified are
existing pocket parks to be maintained. The pedestrian mall along
North Washington Avenue and within Lansing Community College is
a physical barrier separating this area from the rest of the City.
Opening North Washington Avenue to vehicular, as well as
pedestrian and bicycle, traffic will integrate that area with central
Lansing. North Washington will become a north/south axis, easily
identified and understood by visitors, stretching from Old Town on
the north through the Washington Square Commercial District and to
the Riverpoint Neighborhood to the south. Finally, future
4-11 March 1999
0 connections are proposed along the River Trail to adjacent
neighborhoods.
•
Future Study Area
This area encompasses the Washington Square pedestrian mall. In
order to revitalize retail business, further study is necessary to
determine the development potential for this area. Enhancement as a
mall area may be appropriate. However, opening the area up to
some form of vehicular traffic may be the solution to stimulating
business. More details related to this matter are contained in the
Community Design Recommendations portion of the document.
Alternatives Considered
Before the finalization of the future land use map three alternatives
were considered. The final product is a compilation of these three
concepts. Below is a description of the key issues addressed in these
plans.
4-12 March 1999
•Alternative "A" - West River as
the Organizing Element
Focusing development
along the Grand River to
reverse the past
development trend of
developing away from the
river.
❖ Primarily residential land
use of varying densities
planned along the river.
❖ Identification of prime
development and
redevelopment sites.
❖ Identification of non -
vehicular connections to
the river, including
pedestrian bridges.
❖ Maintain Capitol District
on west side of the river
with Entertainment
District on east side of the
river.
• ❖ Light Industrial at Cedar
and Larch to the south.
❖ PSD river corridor is 1.75
miles long and too long to
promote critical mass of
activity.
•
ALTERNATIVE "A"
WEST RIVER AS THE
ORGANIZING
ELEMENT
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
LEGEND
N PARCEL LINES
N ROW LINES
N STUDY AREA BOUNDARY
■ GRAND RIVER
� �>• -�� ter- srtr:
an'.
KIWI
SM
011
4-13
n
March 1999
rI
•
•
ALTERNATIVE "B"
EAST RIVERSIDE Z
FOCUS /LINKAGE OF 4
ENTERTAINMENT
AND OLD TOWN
DISTRICTS
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
STRATEGY FOCUSES ON ENCOURAGING
LINKAGE OF ENTERTAINMENT DISTRICT
WITH OLD TOWN THROUGH:
-PUBLIC DEVELOPMENTS
-CAPITAL IMPROVEMENTS
LEGEND
N PARCEL LINES
N ROW LINES
N STUDY AREA BOUNDARY
■ GRAND RIVER
4-14
March 1999
Alternative "B" - East Riverside
Focus/Linkage of Entertainment and
Old Town Districts
❖ Focus on improvement and
expansion of individual
activity nodes: Capitol District,
Entertainment District, and
Old Town District.
❖ Entertainment District
expansion to the north
❖ Fewer residential
opportunities compared to
other alternatives.
❖ Gateway commerce proposed
as a mixed use area at the
southern end of Cedar and
Larch Street.
❖ Focus on encouraging
linkage of entertainment
district with old town through
public developments and
capital improvements.
•Alternative "C" - West Riverside
Focus/Linkage of Entertainment
District to CBD Core
•b Generally consistent with
future land use plan.
•S Overlap boundaries of
Entertainment and Capitol
Districts.
❖ More high
technology/light industrial
uses.
•
•
❖ Residential along the
riverfront with less
emphasis on specific
densities.
❖ Trolley and River Trail
links to Old Town and
Entertainment/Capitol
District
❖ Southern transitional area
separated into four
different categories of
land use.
•A Identifies housing
primarily along the River
between Old Town and
the Capitol District.
ALTERNATIVE "C"
WEST RIVERSIDE
FOCUS/LINKAGE
OF ENTERTAINMENT
DISTRICT TO CBD
CORE LC
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
LEGEND
N PARCEL LINES
N ROW LINES
N STUDY AREA BOUNDARY
N GRAND RIVER
I
111 .. 1i-
4-15
March 1999
❖ Community Circulation Improve accessibility in and Transportation is intrinsically woven into the fabric of our existence,
around central Lansing for encompassing not only how we et from lace to but also how
transit, vehicular, bicycle and P g y g P place,
pedestrian traffic we conduct our daily routines... Getting to work, school, or medical
appointments, running errands, shopping, socializing and enjoying
recreational pursuits are among the many things we do that are
❖ Preserve the integrity of affected by the kinds of transportation available (or not available) to us.
residential neighborhoods The location and appearance of transportation facilities the design of
adjacent to major activity PP P g
centers streets and sidewalks, and the placement of on -street parking can make
all the difference in how we experience our daily activities" Buildin
Livable Communities Through Transportation, U.S. Department of
Transportation).
❖ Define the following terms: It is important to understand that community circulation concerns the
principal arterial, minor circulation of people, by whatever form of transportation they choose.
arterial, major collector, and The more different forms of transportation available the less like) that
local roadway p � Y
any one form will become overloaded or slowed by congestion.
A balanced system of improvements will improve way -finding in and
around the area, calm traffic through residential areas, eliminate
physical barriers between uses and link major activity centers for all
modes of transportation. This also includes transportation along the
Grand River. Recommended improvements for the linkages to the river
are contained in the Community Design portion of this section. An
effective community circulation plan for the study area must not only
achieve the Development Plan Objective of improving linkages
throughout central Lansing, but must also work towards stabilizing the
residential neighborhoods.
The most recent twenty-four hour daily traffic data and parking data
were obtained from the Tri-County Regional Planning Commission,
City of Lansing, and MDOT to evaluate the operation of the City's street
network and its existing parking conditions. Based on a review of the
available traffic data and field observations, the study area street system
and intersections operate at a relatively high level of service which
implies minimal congestion of traffic. In fact, even during peak
commute periods, only short and minor congestion was recorded.
This plan makes no recommendation on how to implement the
circulation recommendations. A detailed study of their impacts on
existing traffic, transit and parking conditions must be performed to
determine their functional feasibility.
4-17 March 1999
EXISTING
CIRCULA
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
LEGEND
N Right -of -Way Lines
N Local Street/Road
V Other Principal •1
Minor Arterial
/IV Urban Collector
moo Average Daily Traffic Volu
r-► Street Direction
® Grand River
600 0 Soo 1200 Feet
A
L�
One way streets pose impediments
for motorists
,OConvert Ionia Street, Liberty
Street, Washtenaw Street, and
Shiawassee Street west of
Grand Avenue to conventional
two-way traffic flow
•
Vehicular Improvements
A grid pattern and one-way couplet street system characterize the
existing roadway network within central Lansing. Interstate 496 (1-
496) runs east -west along the south edge of the study areanF Several
north -south principal and minor arterials, major collectors, and local
roadways connect Old Town in the north to 1-496 in the south, with
Washington Avenue continuing over 1-496 to the commercial district
in the Riverpoint Neighborhood. The functional classification,
average daily traffic volumes and traffic operation (one-way or two-
way) are illustrated on the preceding page. The one-way roadway
network in downtown Lansing provides high capacity, unrestricted
commuter traffic flow for drivers into, or out of, central Lansing.
The predominance of these one-way streets poses a significant
impediment to the visitors and others not familiar with the downtown.
They reduce opportunities for direct access to local destinations, and
make traffic circulation more difficult. Businesses are less accessible
to clientele, CATA has difficulties with pick-ups and drop-offs, traffic
is funneled through downtown with little or no opportunity for
travelers to enjoy the amenities, and way -finding for motorists
unfamiliar with the area is difficult.
Currently, there are fifteen one-way streets in central Lansing. Twelve
function as couplets. These couplets are Oakland Avenue and
Saginaw Street; Shiawassee Street and Ionia Street; Ottawa Street and
Allegan Street; Pine Street and Walnut Street; Capitol Avenue and
Grand Avenue; and Cedar street and Larch Street. Liberty and
Washtenaw Street are independent one-way streets. St. Joseph Street
is a one-way street which'parallels 1-496 to the north. Its couplet is
Main Street, which is just south of the study area, and which parallels
1-496 to the south.
As described below, conversion of all one-way streets to two-way
traffic operation is recommended except in those instances where a
detailed traffic study shows that such a conversion is inadvisable.
As proposed, the only remaining one-way streets in central Lansing
will be Oakland Avenue and Saginaw, St. Joseph, and Main Streets,
which are important regional arteries. A phased approach to these
conversions has been suggested:
The proposed circulation plan has been phased into three stages, all
of equal importance but according to ease of implementation. Again,
these recommendations should be completely evaluated to determine
4-19 March 1999
functional and economic feasibility.
Phase I: Convert Ionia, Liberty, Washtenaw and Shiawassee Streets to
conventional two-way traffic flow. These streets currently carry low
traffic volumes and operate well below their design capacity, either as
one-way or two-way streets. In addition, Shiawassee Street is a cross -
river route, and would serve as a better linkage between the Capitol
and Entertainment Districts if its two-way operation was expanded
west of Grand Avenue.
Phase II: Convert Allegan, Ottawa, and all remaining one-way streets
east of Martin Luther King, Jr. Blvd., west of the Grand River, south of
Oakland Ave., and north of Main St. (except Saginaw and St. Joseph)
to two-way traffic operation.
Currently the traffic flow on the streets bordering the Capitol Building
reverse every block, thereby, "pushing' a motorist unfamiliar with the
area two to three blocks away from the Capitol, resulting in circuitous
travel and confusion.
In changing to two-way traffic flow, the capacity to accommodate
traffic is substantially unaffected and no on -street parking is
eliminated, while substantially improving circulation, and the user -
friendliness of the area. However, conversion of Grand Avenue from
one-way to two-way may present some obstacles which will need to
be addressed. Specifically, existing parking ramps are configured to
serve one-way access. There may also be design impediments with
the Capitol Area Transportation Authority (CATA) Transportation
Center and their need to depart several hundred buses a day onto
Grand Avenue in a timely manner.
Phase III: Convert Larch Street to a two-way, four lane, major north -
south arterial. Convert Cedar Street to a local collector street with
two-way operation, bike lanes, and on -street parking. Currently, the
Larch ,and Cedar Street one-way couplet acts as a physical barrier for
east -west connectivity, intimidating pedestrian movement and
impeding cohesive residential development. This is primarily due to
high volumes of traffic and the relatively high speed of vehicles. It is
important to note that Larch and Cedar Streets provide a regional, as
well as local, function by moving high volumes of traffic to and from
areas located north and south of the City. Adequate right-of-way
exists along Larch Street to allow for additional lanes and/or turn lanes
at intersections, thus improving the ability to carry higher traffic
volumes. The intent would be that any modifications to the operation
4-20 March 1999
❖ Reverse the direction of
one-way traffic flow on
Ottawa and Allegan Streets
and convert Pine Street and
Grand Avenue to two-way
traffic operation
•
•
•
of Larch and Cedar Streets would need to match existing conditions
❖ Convert Larch Street to
a two-way, four -lane
north of 1-496 to prevent modifications to the interchange.
major north -south
thoroughfare and reduce
This proposal not only eliminates Cedar Street as a barrier, but could
Cedar Street to a two-way,
improve property values between Cedar Street and Larch Street,
two-lane, local street.
providing the potential for vital residential development just north of
the Entertainment District. The proposal would also provide
additional pedestrian scale on -street parking in the heart of the
Entertainment District where parking needs are critical.
•
•
4-21 March 1999
s
Z l
Roadway Improvements
Several changes in the roadway are suggested to calm vehicular traffic
and improve pedestrian, bicycle, and transit circulation. These
suggestions include:
• Install bike lanes on all arterials and collector streets in the
planning area, except for along the South Washington Mall,
where the steep roadway crown and 90-degree parking renders
bike lanes unsafe.
• Provide signs and striping that identify bike routes for added
visibility, separation, convenience and recognition to bicycle
traffic in roadway.
• A "No Turn On Red" policy for vehicular traffic (with the
possible exception of transit) within the planning area should
be studied and considered to improve safety for pedestrians
and bicyclists.
• Prevent and eliminate unnecessary curb cuts within the
district. Mid -block turning movements interrupt the flow of
vehicular, pedestrian and bicycle traffic, and increase conflicts
among transportation modes.
• Provide signage which posts the timing of the traffic signals
(not just the speed limit), to discourage people from speeding
up to beat red lights.
• Lower the speed limits in areas where high pedestrian traffic is
encouraged.
• Provide raised intersections and speed humps to alert motorists
of pedestrian crossings and intersections.
• Change street sign location and typeface appropriately to
improve visibility and way -finding.
4-23 March 1999
• Explore the installation of landscaped, unsignalized M
roundabouts to even out the flow of traffic, and to provide
additional design opportunities.
• Install raised intersections to slow auto traffic down at key
crossing locations.
• All -way pedestrian crossings should be considered at locations
with high pedestrian volumes, especially during special events.
• Street narrowing for mid -block pedestrian crossings should be
considered for long uninterrupted blocks. E. Michigan Avenue
in front of the Lansing Center is a good candidate for such
treatment.
Public Transit
The public transportation system in Lansing will greatly benefit from,
and contribute to, the success of The Plan. The land use, design and
circulation elements discussed can be applied to transit
improvements.
A critical mass is created by density and a mixture of uses.
Residential areas should be located in close proximity to commercial
and office areas. Additionally, residential development is encouraged
at higher densities for more people. In order for this concept to
thrive, many modes of transportation must be available to residents.
Lansing is fortunate to have an existing system. The City must
continue to promote this concept through strengthened cooperation
with CATA. Employers may also assist through subsidies of bus
passes and parking fees. Finally, CATA may wish to consider offering
various types of services to appeal to the needs of more people. This
may include circulation routes or satellite shuttles.
On a smaller scale, the visual appearance and accessibility of a transit
stop has a great deal of effect on the use of public transit. Bus stops
send a message about public space and the City's identity. They
should be perceived as part of the environment and follow a
consistent design theme. There are different levels of stops in relation
to the types of amenities that are provided. However, each bus stop
should contain some type of welcoming element to enhance the
riders experience. The design of stops with shelters should
complement the surrounding area. Shelters can have multiple uses.
Bike racks, drinking fountains, emergency phones, directional maps,
4-24 March 1999
•
trash cans and flower planters should be considered for additional
amenities at a majority of the stops. Safety is also a factor, therefore,
stops should be well lit and easy to find. Finally, barrier free
accessibility is a significant consideration in transit sop design.
Extensive consideration should be given to transit stop enhancement
as part of the City's public improvements. This type of investment
will increase ridership and make central Lansing more appealing to
residents and workers.
The circulation recommendations will also benefit the public
transportation system. Currently, the recently completed CATA
Transportation Center (CTC) handles approximately 700 buses a day
onto and off of Grand Avenue. If Grand Avenue were converted to
two-way, buses may have improved access into and out of the CTC.
However, further traffic operation analysis would be required to
identify and address the impacts as a result of the conversion.
In addition, the daily routine of accommodating riders is
exacerbated by the existing one-way street system. Bus routes are
limited to specific streets and additional travel time is incurred
because of circuitous travel on one-way streets. Due to the fact that
passenger doors are installed on the right side of the buss, stops can
be only located on the right side of the street. Because of this
situation, passengers are often required to cross three or more lanes of
one-way traffic to board a bus. On a two-way Street system, bus stops
could be located on either side of a Street resulting in safer passenger
access, particularly for those with special needs. In addition, bus
routes could be located on streets based on minimizing travel delay
and maximizing patronage rather than routing by street direction.
Because the distance between the north and south termini of the PSD
is so great (1.75 miles), providing adequate linkages between the Old
Town District and the capitol and Entertainment Districts is difficult.
The existing riverwalk is currently utilized by pedestrians, but the
walking distance is extensive, particularly in inclement weather. As
indicated on the Concept Plan, a trolley line should be used to
connect these two areas. This line could coordinate with CATA in
order to create a more extensive connection to the downtown areas.
A rubber -tired trolley system is recommended to address this
potential barrier. This trolley should utilize Washington Avenue to
connect Old Town, the residential area, Lansing Community College,
and downtown offices and retail, and should cross 1496 to serve the
Riverpoint neighborhood.
4-25 March 1999
A free ruber-tired trolley, such as the trolley currently owned by
CATA, would be a more practical and easily implemented method of
improving public transit in the study area. Such a trolley could
provide transportation on a regular route. This route could be
changed to accommodate changed conditions or special events. It
could provide direct access to all the activity centers in the study area
and could even connect to special amenities outside of the area such
as the Capitol Hill Station in the Riverpoint Neighborhood and the
restaurants just east of Old Towns on N. Grand River. It could also
provide links to the CTC, the River Trail, Cooley Gardens, and
outlying parking lots. -
A fixed -rail trolley, while not as practical as a rubber -tired trolley,
would be an attraction to the area. This concept has been
implemented in many parts of the country and may be feasible in
conjunction with the redevelopment of the Ottawa Power Station. It
could utilize the recently acquired city -owned railroad easement that
runs from the heart of Old Town to the Ottawa Power Station
building between the Capitol and Entertainment Districts. The
easement also extends north to Capitol City Airport and could
potentially serve people flying into Lansing and needing
transportation to the downtown area. Operations would involve a re-
installed railroad track or use of a rubber -tired vehicle on concrete
trolley street. The system would provide an exciting, safe and unique
means for transporting people within central Lansing. The CATA was
identified as a likely sponsor for operating and maintaining a trolley
system such as described above.
•
4-26 March 1999
Elians
�M a,
30.
Parking Improvements
Parking supply within the study area was thoroughly examined and
GIS database was compiled of all parking within the area. The area
contains metered and unmetered on -street, surface lots and structured
parking facilities. The location and type of metered and un-metered
on -street and off-street parking were also collected as a part of the
parking analyses and is illustrated in the Existing Parking map.
In order to assess the adequacy of parking supply for existing and
future development, the supply was measured for each activity
district.
Fx�sfiin' Parkin Spaces
Suppty
Occupil
I'ere�t Occupied
Capitol
6,093
4,756
78%
Entertainment
890
737
83%
Old Town
202
125
62%
Total
7 185
5 618
78%
As shown in Table 3, the total number of spaces, from all sources,
and the percent of total occupied parking spaces were identified. The
Capitol district contains 6,093 spaces, the Entertainment District
contains 890 spaces, the Old Towns district contains 202 spaces, and
1,926 spaces were found in other areas within central Lansing, but
outside of the Activity Districts.
4-28 March 1999
•
0
•
EXISTING
BARKING
DOWNTOWN LANSING
COMPREHENSIVE PLAN
City of Lansing, Michigan
•
LEGEND
A/ Right -of -Way Lines
Grand River
City Lot
City Ramp
Private Lot
Private Ramp
1` Free
$0.25/h r.
$0.75/h r.
$1.00/hr.
❑EC7❑
N
600 0 600 1200 Feet
4/98
•
As the marketing analysis states, the PSD can support an additional
50,500 square feet of retail space. This increase in retail activity will
generate a substantial demand for parking. Demand for new parking
by District is weighted against the existing unoccupied parking
illustrated in Table 4 below. Please note that Table 4 references
occupancy numbers form Table 3.
Breakdown of Parking by District
Other
21%
r Old Tow n
h 2%
Entertainment
Capito 10%
67%
::.�n;;w::::;:,;:•yi:•i}:;:•:;:G:•i:????^:^::•':;:•{i:^:•{:;:•is4:•:?•:•:;:•i:•i:?:+.;:•::;:?•iii:•}:?;;;.
�.,w:.
�}
.(•':F;:<;>3:;;:?;:;'}:;isy�:::':''t:i5:i::::;:::::::y::::;::2•:•::•:�>:•:i�:it•:�::•S:ti�:>:t�::;::•S
;..: �sti[rlted
Future Increase>n ParKing Demattd
::
New
:New .
Nef
Tfltal
Percent
Sur�ilusl
District ,.'
_;Eestaurant,
,; :Retail
.. Increase . ,
,Demand .::
Occupied
(ShorEage)� .;
Capitol
81
73
154
4,910
81%
269
Entertainment
51
75
126
863
97%
(107)
Old Town
202
75
277
402
199%
(230)
Total
334
223
557
6,175
86%
(68)
footnote ': Based on a target occupancy of 85% representing a full parking facility.
New parking areas, designs and locations must be well planned.
They should be on -street wherever possible and certainly in close
proximity to the major activity centers. Large surface lots should be
discouraged permitting only broken up smaller lots located in
available vacant spaces.
Off-street parking lots, if needed should be placed behind buildings.
New parking ramps should be build with sensitivity to the aesthetics
of the surrounding area. All new parking ramps should have
commercial or office space on the street level.
4-30 March 1999
On -street parking should be provided on both sides of the streets
wherever possible. This will provide additional parking and create a is
protective physical and psychological barrier between auto traffic and
pedestrians.
Safe, convenient bicycle parking should also be provided.
Community Design Recommendations
The physical quality and design of central Lansing is essential to
maintaining investment in the area. People flock to downtowns that
are designed for people to spend time in rather than simply pass
through. The same design qualities that create a livable city also
attract tourism. According to recent market research cited in the April
271 1998 issue of U.S. News and World Report, "today's American
consumers say they are particularly annoyed by commercial strips and
that in principle they would prefer neighborhoods clustered around a
downtown or village center." Downtown Lansing currently offers this
neighborhood life style and has many opportunities to expand and
improve the quality of life in Central Lansing through community
planning and design. The first step is to shape the character and
Important Linkages visual form of the city so it is a better place to live, work, and play. .
o'• Old Town and the Design Guidelines
Entertainment and Design guidelines such as those being developed for the Old Town
Capitol districts Main street area should be developed and adopted for Central
Access to the river Lansing. All signage and typography should be looked at in terms of
its historical appropriateness, legibility, and readability.
a'• Circulation across the
river
Strengthen Linkages
•:• Access to
neighborhoods
The work "linkage" in this document is used to mean connection and
g
including the
accessibility. Activity districts and neighborhoods should have their
Riverpoint
own distinct character. However, linkages between district should be
Neighborhood to the
strong so the use of each district complements and encourages the
south.
use of nearby districts.
•:• Lansing Community
College campus to
Strong physical linkages between the districts promotes vitality and
neighboring districts.
the opportunity to conduct all aspects of life within central Lansing.
Linkages of special concern are listed in the margin.
Recommendations in this plan address vehicular and non -vehicular
connections to these areas. These recommendations, will allow 0
4-31 . March 1999
activity areas to be more accessible for motorists. They will promote
public transit, and improve linkages for pedestrians and bicyclists.
Street Environment is Primary Civic Space
The street is the primary civic space in the build environment. The
organization and design of streets largely determine the physical form
of the city. The character of the street and the way public and private
spaces relate to the street and sidewalk express community values ra
and how the street should be used. DO
Two-way Street Character
One-way streets are proposed to be changed to two-way streets. To
enhance the local character of streets, linkages between districts,
convenience of access, and way -finding throughout the area. One-
way streets facilitate higher speed travel through the downtown and
often restrict activity rather than encourage and integrate activity
within the community. Along with the change in traffic flow, several
changes in design are proposed to ensure that streets are sized and
detailed to equally serve the needs of automobile, transit, bicycle, and
pedestrian traffic. Traffic lanes should be kept to a minimum number
and width to discourage high speeds through traffic and encourage
flow of low speed local traffic.
On -street parking should be provided on p g p both sides of the streets
wherever possible. This will provide additional parking and create a
protective physical and psychological barrier between auto traffic and
pedestrians. Both sides of the roadways should provide a street
furniture zone which contains shade trees and unobstructed sidewalk.
Ideally, the street furniture zone should be a minimum width of five
feet and the unobstructed sidewalk would be a minimum width of
eight feet.
Cedar Street
The recommended improvements to Cedar Street will drastically alter
the character of the area to an environment which will support
residential development. The future Cedar Street will be designed to
link the neighborhoods together and enable cross -use between Old
Town and the Entertainment District. On -street parking, a bicycle
route, slower speed limits, and traffic lights will discourage through
traffic and maintain a safety level conducive to residential
neighborhoods. The typical cross-section should consist of wide
sidewalks with a grass strip to the curb, minimal or no overhead
utilities, decorative lighting and trees on both sides of the roadway.
The lane widths should be reduced. To further support the pedestrian
4-32 March 1999
Ideal Sidewalk Layout - Furniture Zone Plan
View Sketch
Support pedestrian environment on Cedar
Street
Enhance Larch Street as a primary gateway
environment, cross walks and pedestrian signals should be introduce*
and accentuated with complementary design features.
Larch Street
Larch Street is a primary gateway to Lansing and should be designed
to give a positive impression of central Lansing. The proposed
character of Larch Street is of a local arterial that links Old Town and
the Entertainment District and serves as an access point to the freeway
system. The street should accommodate through traffic and truck
traffic away from residential areas and the Old Town districts, Larch
Street should be an attractive local street that encourages people to
enter and enjoy downtown Lansing.
As planned, Larch Street will develop as high technology to the east
and mixed-use/residential-use to the west. The roadway should be
designed to serve as a land use buffer which also provides screening
between the uses. This can be accomplished through heavy
landscaping along the right-of-way and possibly within a boulevard or
median in some areas. Plantings or other treatments should serve the
purpose of screening of the industrial and opening up Larch Street.
Travelers should catch a glimpse of the possible destinations in
downtown. Streetscape treatments should be located between the
curb and the sidewalk to give the impression of an urban parkway,
contribute some sense of enclosure to the open roadway, and protect
pedestrians. Overhead utilities should be relocated underground.
4-33 March NO
•
•
•
0
4-34 March 1999
•
PROPOSED SECTION
(View North Between Michigan
Avenue and Shiawassee)
•
EXISTING SECTION
(View north Between Michigan
Avenue and Shiawassee Street)
r�
4-35 March 1999
Organization of Public Spaces
Way4inding
A way -finding system encourages people to use downtown for a
variety of activities by making it easier for them, by taking the fear of
getting lost out of their trip, and by informing them of destinations
Way4inding
they might not know about. Although the changes in traffic patterns
will facilitate way -finding in downtown Lansing, a well designed,
%'' Maps
integrated possibly color -coded system of signs, maps, information
kiosks, landmarks and public spaces will help people find their way
signage
from one destination to another. This is especially important in
.;. International symbols
Lansing because our market research shows that currently, many
people use central Lansing for a singular purpose such as work but
4_ Accessibility
not for other activities. One solution to this problem is to make it
easier to circulate among several destinations.
•:• Landmarks
Downtown is particularly suited for multiple destination activities due
to the clustering of land uses in close proximity to each other. The
way -finding system should direct people to the various districts and
their attractions, and to the River Trail. It should also serve people
who have vision problems and should be tailored for international
guests. A critical aspect of the way -finding system will be a system of
location signs for parking and transit stops.
Parking Design
Because the downtown is competing with suburban locations for
users, parking must not be a negative and frustrating experience.
Surface parking lots are discouraged. Parking facilities should be of a
Quality Parking Lot Design
scale that is consistent with the character of its surroundings.
•%• Adequate landscaping,
Adequate landscaping, lighting and locational signage will improve
lighting and signage
the aesthetics and enhanced the experiene of a parking in central
Lansing. Surface parking lots should be located behind buildings, and
•%• Landscape strip between
have a landscape strip between the sidewalk and pavement at least
sidewalk and pavement
five feet wide. Shade trees and landscape plantings a maximum
height of three feet tall should be planted in the strip to enhance the
'%' Shade trees and landscaping
look and comfort of the parking without blocking views to or from the
a maximum height of 3 feet
lot.
tall
d• Structures should have a
The parking lot interior should have shade trees and landscape islands ten -foot landscape strip
to break up any expanses of pavement. Parking structures should between the sidewalk and
have a ten -foot landscape strip between the sidewalk and the the structure
structure to soften the impact of the structure on the street
environment. If the structure is within the Capitol, Entertainment or
Old Town Districts, a storefront on the ground floor should be
incorporated to enliven the street and allow building to the right-of-
way line.
4-36 March 1999
Billboards should be prohibited
in central Lansing
Gateways
Entrance to
Downtown
10- First Impression
Image of Downtown
Transition Point
Signage
Signs on private property can contribute to or detract from the
character of a district and the way -finding system within a
community. Too many signs placed randomly in the streetscape
create an impression of clutter and low quality. Signs that are too
large or too numerous dominate views within the city. For effective
use of signage on private property, signs should be consistently
located in the same place on different properties. Signs should only
be large enough to communicate essential information of business
identification. Sign materials should compliment the architecture of
the building especially in areas with historic architecture. Window
signs should be limited and views into and out of businesses should
be encouraged. Storefronts should be artfully arranged to advertise
merchandise without the use of signs. Signs and building facades in
the Capitol and Old Town Districts should be restored to their original
historic character.
The City's efforts to minimize the negative impacts of billboards
should be encouraged. The adjacent photo of the billboard is located
at'a primary gateway into central Lansing. Billboards should not be
allowed within central Lansing due to the mix of residential uses
proposed, the historic character of the Capitol and Old Town
Districts, and a need to enhance the entrance to downtown by
eliminating billboards in these areas.
Gateways to Downtown
The primary entrances to downtown should be distinct and project a
positive image of central Lansing. They should invite people in and
make them excited about Lansing. They should subliminally
advertise the retail areas and the high status downtown Lansing
should have. The gateways should serve as a transition point where
the character of the area changes to a very pedestrian district with a
more urban identity. This urban identity is not abrasive or fearful but
builds on Lansing's comfortable size to project a character of a vital,
historic, convenient and safe downtown with a variety of activities
and neighborhoods to experience. Special landscape and decorative
street lighting treatments should start in these areas. Landmark public
art should be sited in these areas where space allows. The way -
finding system of signage boards and kiosks should start at these
gateways especially where people are walking.
4-37
•
March 1999
Riverfront
In cities around the world the riverfront has served as an
enhancement to the area and land along the banks of the river is
consistently noted as prime real estate. The following strategies will
generate interest and activity on the Grand River.
River Park Expansion
People are naturally drawn to bodies of water for comfort and
interest. The Grand River is a focal point for downtown Lansing that
is already well loved and widely used. The River Trail and system of
parks along the river are an important resource linking all the districts
and neighborhoods together. The River Trail and park should be
expanded to extend the full length on both sides of the river even
where space would only allow a boardwalk cantilevered over the
water. This would allow walkers, joggers and bicyclists several loop
routes along the river. It would also facilitate modes of transportation
other than the car and a stronger tie between Old Town and the
Capitol and Entertainment Districts.
Open spaces within the park should be varied in size and extent of
manmade elements; some should accommodate large special events
in the form of a plaza and all should be pleasant and intimate.
Landscape should allow views into and out of the river park by
providing an overhead canopy and low growing plant materials.
Evergreen trees with branches to the ground limit visibility and
jeopardize the safety of the area.
As an additional element to the expansion of the riverfront, signage
and maps should be updated as a part of the overall way -finding
system. It is also important that open spaces have their own distinct
identity and possibly public art to provide landmarks to help people
find their way through the park and serve as a meeting point. More
activities on the river will also generate interest such as gandola rides
and other type of boat rides.
Bicycle and Pedestrian Bridges
Multi -use pedestrian bridges are essential to facilitate linkages across
the river and to encourage use of the River Trail. New pedestrian
bridges should be provided mid -block near the end of Ionia Street
and Washtenaw Street to supplement the existing sidewalks along
street bridges. With the planned future installment of residential
development to central Lansing these connections will become more
valuable. The trolley bridge should be renovated for trolley use and
bicycle/pedestrian use. The bridge near the end of Ionia Street would
provide a link between the museum and arts districts south of
Michigan Avenue. This bridge could be a central amenity in an area
4-38 March 1999
Open spaces are essential to the
vitality of the City
Provide More Pedestrian Bridges
Improve Access Between Street Bridge and
River Trail
with several sites that should be developed with a strong positive
orientation to the river. 0
The bridge near the end of Washtenaw Street would provide a public
outdoor link between the Board of Water and Light building when it
is redeveloped and the riverfront plaza proposed near the current City
Market site north of Michigan Avenue. All existing street bridges that
cross the river should be improved for pedestrians and bicycles by
providing direct and pleasant access to the River Trail on each side of
the river and both sides of the bridge. All trails and park facilities
should be universally accessible allowing elderly, disabled and
injured people to use the park.
Physical and Visual Linkages to the River
The character of the Grand River has changed dramatically in recent
history from an industrial riverfront to a park. In many parts of central
Lansing, one can be less than a block from the river with no idea that
the river is so close. Views into the river corridor and physical links
to the river should be enhanced especially where road rights -of -way
end at the river. Landscape enhancements along the river will
provide the visual relief of a greenspace in the City. Where the river
elevation is much lower than the surrounding area and views to the
river are difficult, landscaping should provide a visual clue that
something is special in this area. Buildings on the river should face
both the river and the street. Improved physical and visual
connections will be facilitated by the planned increase in housing
along the riverfront. Riverfront development, residential and non-
residential, should tie into the public river walk system and should
encourage activity along the river corridor by providing terraces and
public spaces to enjoy nature in the City.
Capitol District
Commercial/Retail Core
The two most important streets in the Capitol District are Michigan
and Washington Avenues. Michigan Avenue is the ceremonial
gateway leading to the Capitol building and the surrounding historical
structures, and Washington Avenue is the heart of retail activity.
Future development and facade improvements should mirror the
unique and historic architecture in the downtown. The streetscape on
these streets should represent the highest quality public environment
the City has to offer, they should be maintained to the highest
standard in the entire City to reflect the importance and level of pride
in downtown.
11
4-39 March 1999
Michigan Avenue
Quality design improvements have been made to Michigan Avenue
that should be maintained meticulously and upgraded as they
deteriorate over time. Continued importance must be placed on the
pedestrian network critical to the success of this corridor. On -street
parking must be encouraged and large stately street trees should be
provided near the curb. The central view to the Capitol building
should continue to be preserved. Street level windows and storefronts
should be provided to make the walk on Michigan Avenue lively and
comfortable. A mid -block crossing should be installed in front of the
Lansing Center to make it easier for pedestrians to visit attractions on
the south side of Michigan Avenue.
Washington Avenue (Kalamazoo Street to Michigan Avenue)
This area of the Capitol District is the traditional downtown retail
center essential for the success of any major city. The streetscape in
South Washington Square is attractive and creates a comfortable
pedestrian environment. To further generate economic viability,
there are several ways it could be improved. Every streetscape needs
to be updated and enhanced periodically and improvements should be
considered for South Washington Square. Any future design should
ensure that the district is attractive and provides for pedestrian
comforts.
Washington Avenue serves as a promenade where one of the many
interesting activities is people watching. Existing berms and high
shrubs block views and detract from the perception of security.
Vegetation in this area should soften views within the streetscape but
should not completely block views along the street. Low planting beds
at the same grade as the sidewalk should be provided. Vegetation
within these beds should have a mix of seasonal landscape materials
that are a maximum of three feet tall. Deciduous street trees should be
consistently spaced approximately 35 feet to 40 feet on center.
Evergreen trees should be used sparingly because they obstruct views
within the corridor. Drainage should be dealt with through an
underground system with decorative surface drains rather than drainage
channels that intrude on a convenient and attractive streetscape. Brick
pavers should be used as decorative accents in sidewalks to enhance
the pedestrian environment.
Existing wood sided kiosks should be replaced with kiosks and signage
boards in a similar style and materials as the existing decorative metal
light poles. The kiosks and signage boards should provide a map of the
retail district which identifies business locations similar to maps
routinely provided in malls.
Posting of upcoming special events, rules of behavior within the
corridor, bus schedules, and public phones should also be provided on
4-40 March 1999
Protect View of Capitol on Michigan Avenue
Washington Avenue Retail
❖ Eliminate Berming
No Evergreen Trees
Simplify Signage
❖ Shade Tree Canopy
•V Kiosk Style to Match
Lights
•S• Wayfinding System
the kiosks. Signage other than decorative banners should not be .
displayed on the light poles. Traffic and parking signage should be
minimized within the corridor and when it is necessary it should be
neatly displayed in groups on poles to match the decorative lighting.
Several design elements, including street trees, brick pavers, and
decorative lighting, should be extended southward across the 1-496
bridge toward the Riverpoint Neighborhood.
Existing Washington Avenue Retail
Proposed streetscape Improvements on Washington Avenue
4-41
March 1999
•
i N.1' 2A
t r' •1 �.
•
•
Existing Pedestrian Mall is Segmented
Washington Square (Michigan Avenue to Shiawassee Street)
Washington Square from Michigan Avenue to Shiawassee Street is a
pedestrian mall flanked by office buildings. The pedestrian mall is
divided into several distinct spaces with seating and landscaping.
Special events are held in this area but often they do not provide spill-
over patronage to nearby retail uses. This space should be designed as
a town square, pedestrian/transit mall and central space for year-
round special events. It should have a more direct visual and physical
tie to both the Washington Avenue retail south -of Michigan Avenue
and the Lansing Community College (LCC) campus north of
Shiawassee Street so that special events in this area draw LCC
students and have a direct positive effect on the entire area.
The three block area should be designed as one cohesive space with
three components rather than divided into many separated spaces. As
one system, the square will function better as a civic space for special
events and an open green space for daily use by residents, workers,
and tourists.
The proposed concept for this area illustrates a ceremonial lawn with
borders defined by wide sidewalks and lines of street lights and
deciduous trees in the first block north of Michigan Avenue. A tall
and visible landmark sculpture adjacent to Michigan Avenue should
mark the entrance to the mall and the terminus of the neighboring
retail. The first block of the mall should end at a large round or oval
• QUIET CONTEWLA770NI OPEN ViIEWS • GREEN LAWN IN THE HE4RT OF TW GrrY
• WTFRPRRETAT70N OF THE omm RIVER'
• SEASOM4L DISPLAY O.F. GARDEN COLOR
WASHINGTON AVENUE MALL DESIGN CONCEPT
AXONOMETRIC
4-43 March 1999
bandstand which could serve as a stage in the round during
special events and as a gazebo at other times.
The second and third blocks should be designed as a sculpture
garden that could also serve as a supplementary space for larger
special events. The flowing design of the garden beds proposed
symbolize the Grand River. The garden beds are edged with a
low curving seat wall and are filled with a variety of plant
materials which grow a maximum of two and one half feet tall.
Views should be kept open throughout the space by providing
low growing plant materials in the garden beds and a tree canopy
overhead. Quality public art collected over time should be
artfully sited in this garden and at landmark locations throughout
the City. Lighting in these blocks should display the sculptures,
building facades and garden beds.
Linkages to the Lansing Community College Campus Existing view of LCC North Entrance
The Lansing Community College (LCC) campus serves as a
transition from the Capitol District to the neighborhoods north of
Downtown. The Washington Avenue right of way is the primary pedestrian
corridor on campus and the center of campus. The clear definition of
a campus is important for LCC's identity and daily function. The
design of the campus, however, has inadvertently created an
obstruction in the continuity of central Lansing. Linkages from the
campus to the surrounding areas are strongly recommended to
encourage student use of nearby retail and services, promote the
adjacent neighborhoods as potential living areas for students, and
ultimately remove physical and psychological barriers between Old
Town and adjacent neighborhoods and the Capitol District. - F
One of the most obvious barriers between LCC and adjacent
neighborhoods to the north is the existing landscaped berm and
parking lot that terminates the Washington Avenue pedestrian
corridor on the north end of campus. This should be redesigned as a
ceremonial entrance to campus that would enhance the linkage to
surrounding areas and improve the visibility and image of campus. A
prominent walkway should lead to a distinctive north entrance to
campus. The entrance treatment should include a set of stone pillars,
gateway arch or gatehouse pavilion with crosswalk improvements
across Saginaw Street. The design should complement the stone
gateway arch marking the entrance to neighboring Durant Park.
The south entrance to campus from downtown on Washington
Avenue should also be improved. The visible and prestigious
location at the northern terminus to Washington Square should be
4-44 March 1999
C7
LCC Proposed North Entrance Improvements -
Bird's eye view
C,
•
Storefronts Should Maintain Historic
Character,,,
celebrated with a gateway treatment of quality natural materials similar
to that proposed at the north entrance to campus.
Old Town District
Old Town has a lot of potential for future development, particularly
with increased residential development in the area. The design of the
Old Town District should maximize its unique character and identity
by preserving and restoring the historic buildings in the concentrated
retail area. According to market research done for this plan, people
want to be entertained by a unique shopping experience and live in an
authentic community with a village center. The Old Town area should
continue to function as a living neighborhood, with opportunities not
only for tourism, but for the basic shopping needs of its residents.
The Turner Street roadway is unnecessarily wide directly north of
Grand River Avenue. Parallel parking should continue to be
accommodated as additional retail space is developed in Old Town.
Bike lanes should also be provided. Grand River Avenue's sidewalk
width should also extend around the corner on Turner. Paving
surfaces should be improved with new concrete and decorative pavers
in a simple edge pattern within the street furniture zone at the curb.
The street furniture zone should be wide enough to accommodate
outdoor dining, sidewalk festivals, and an improved streetscape. The
existing street trees are too close to the buildings, hide the historic
building facades and block views of necessary signage. They may be
damaging foundations, and they impede normal pedestrian traffic
along the storefronts. A more desirable scenario is to have street trees
planted in tree pits, near the curb line which will define a sheltered
pedestrian zone adjacent to the storefronts and provide a canopy over
part of the street. To further preserve this comfortable pedestrian
scale, truck traffic should be minimized in the area. This traffic should
be directed to Larch Street and other major thoroughfares.
The historic character of the buildings in Old Town is of great
economic value for creation of a mixed use village center with an
attractive historic image. Storefronts should be restored with
traditional architectural elements appropriate to the late nineteenth
century such as a cornice spanning the storefront, transom panes,
recessed entries, and large plate glass display windows. If awnings are
used, they should be retractable canvas authentic to the period.
Doorways should be recessed and should not impede pedestrian flow
on the sidewalk. The artistic values and talents of the community
should be expressed through storefront displays, eclectic interior
decor, signage and public art.
4-45 March 1999
In -fill construction or development of new buildings on vacant sites
should respect the proportion, relationship to the street, building
materials, and roof forms of historic buildings. Adaptive reuse of
buildings and infill development in Old Town should encourage a
stronger orientation to the river, a concentrated mixed use core with
retail on the ground floor and office or residential space on upper
floors, and supporting mixed density residential areas including loft
conversions surrounding the core.
The physical linkage between the districts should also be
strengthened. As described in the circulation section, a rubber -tired
trolley should link Old Town with Lansing Community College and
the Capitol District. River park improvements should focus on this
link and should be designed to enhance the gateway to Old Town.
The green space south of the Turner Street/Grand River Avenue
intersection should be designed as a town square for special events,
with some small surface parking areas on the south edge.
Existing Turner Street View to North
4-46 March 1999
•
•
C
Desired Turner Street Improvements
•
4-47 March 1999
Entertainment District
Design is a critical component in creating a successful
retaiVentertainment district in downtown Lansing. As the
Entertainment District develops, it should possess the following
qualities:
must be unique
there must be adjacent attractions
the area needs convenient pedestrian circulation and
links to adjacent anchors
the entertainment must provide enjoyment for a
sufficient duration
have family and adult orientation
food quality must be high
merchandise must be affordable
critical mass is needed to support length of stay
a high repeat visitation by residents and diverse
supporting markets are essential
personal security and the perception of safety must be
provided
A subsidy of 30 to 50 percent for large scale urban entertainment
centers is often required, and a local developer usually plays an active
role in the district's development.
Pedestrian Improvements
To make the Entertainment District more pedestrian oriented and to
strengthen links to other destinations downtown, additional
entertainment destinations should be developed along the riverfront
and throughout the district. Locating new attractions in this area
strengthens links between the destinations of the Capitol and
Washington Avenue retail, and Oldsmobile Park and the Lansing
Center. The riverfront area is also within a ten minute walking
distance of the entire Capitol and Entertainment Districts.
The waterfront itself is an attraction that should be maximized.
Existing links to the river should be direct, obvious, visible from many
places, and should be public. The proposed street improvements will
enable visitors to utilize Cedar Street to walk or stroll to their
destinations. The Entertainment District will be more cohesive and
pedestrian -friendly if it is not divided by several adjacent arterial
corridors.
The way -finding system is especially important in the Entertainment
District because locating parking easily and finding the way from one
attraction to the next is an essential part of a comfortable downtown
experience. A well -marked and highly off-street pedestrian
4-48 March 1999
Oldsmobile Park
•
•
Improve pedestrian links to the river
•
promenade should be established which links Entertainment District
attractions, the riverfront, and the Capitol District. The pedestrian
bridges proposed in this Plan are an important component of this
promenade.
The Entertainment District contributes to 24 hour activity in central
Lansing; supportive mixed density residential adjacent would not only
provide activity, beyond traditional business hours, but would bolster
the supporting market for retail and entertainment in downtown, and
would increase the perception of security. High technology and light
industrial uses should provide a transition to adjacent industrial and
transportation corridors.
Proposed Performing and Visual Arts Center
The feasibility of a performing arts center is currently being analyzed
as part of a separate Performing Arts Center Feasibility Study.
Potential sites will be evaluated as part of this study. A visual arts
component should be included to enable Lansing to attract large art
and museum exhibits.
If determined feasible, this Plan would support this facility in the
Entertainment District of central Lansing because of the significant
contribution to the vitality of the entire City. Location of the center
outside the Entertainment District and especially outside central
Lansing would be a lost opportunity to intensify the critical mass of
activity necessary, create a more pedestrian and transit oriented
downtown, and increase the vitality of the area.
Amend the City Zoning Ordinance
This strategy comes under the jurisdiction of the City. It should
consist of three separate initiatives.
Zoning Regulation Amendments. As the primary implementation
initiative, ancillary regulations which contribute to the ambiance of
an area should be reviewed.
Separate guidelines should be developed for each district in order to
preserve or achieve unique design and character in each district. For
example, the design character of Old Town should be distinct from
the Gateway Commercial and Capitol Service Districts. Minimum
landscaping regulation will help enhance a site through additional
parking lot landscaping and building foundation plantings.
Mixed use overlay zone regulations should be established which can
be applied to specified geographic boundaries within central Lansing,
and includes but is not limited to the following provisions:
• flexibility in parking requirements,
4-49 March 1999
0 ensures compatible design through the adoption of design
standards and formal design/architectural review,
• provides appropriate signage regulation,
• encourages mixed uses,
• encourages maximum lot coverage,
• encourages pedestrian accessibility,
• provides for coordinated public improvements,
• provides flexibility in building codes to permit loft
development.
Rezoning. The City should consider initiating rezoning of selected
properties so the zoning map is more closely aligned with the Future
Land Use Plan. Though The Plan is to serve as a guide over a long
period of time, some immediate action may be necessary. As is
stated in this report, several industrially zoned properties have created
a zoning pattern which is inconsistent with many of the land use
recommendations in the Plan. By encouraging the rezoning of
selected properties, the City accomplishes three things: it begins the
eventual phase -out of some of the marginal industrial buildings in the
area, it protects the investment of entrepreneurs who redevelop sites
into commercial and residential land uses, and it send a strong signal
to the Lansing community that it is serious about implementing the
Plan.
Enhance the Housing Rehabilitation Strategy
Existing neighborhoods are proposed to remain. Therefore, they must
be stabilized to ensure this designation is feasible. A housing and
neighborhood preservation strategy should be conducted for a more
thorough investigation into the issue. However, there are various
methods of financing for the rehabilitation and acquisition of both
owner occupied and rental housing that can be identified. A
centralized agency, or individual neighborhood group should be
responsible for providing this information.
•
4-50 March 1999
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Lansing City Market
Board of Water and Light
Redevelopment Opportunities
City Market
This site has great potential for many different uses that would
contribute to the Entertainment District due to its visibility, central
location on the river, and proximity to the stadium and Lansing
Center. The site design should respond directly to the river and
surrounding attractions. The site could be renovated and expanded
as a full service farmers market with cafes and seasonal retail. Hours
of operation should be adjusted to improve the market's availability
to the shopping public. A sophisticated pedestrian promenade and
plaza should be created in association with this expansion and
should be developed in coordination with other riverfront
improvements.
Board of Water and Light Building (Ottawa Street Power
Station)
The Board of Water and Light building is a landmark situated on a
prime centrally located site. This historic building should be reserved
through adaptive reuse. Reuse considerations vary from an
entertainment facility to residential and office loft spaces. Any
redevelopment scenario considered for this site should include
improvements for the riverfront that capitalize on creating a
significant people place on the river between Michigan Avenue and
Shiawassee Street.
Riverfront City Parking Lot Site
(South Grand Avenue between Washtenaw and Kalamazoo Streets)
The site is located near the Washington Avenue retail area and the
CATA Transportation Center, and is underutilized as a surface parking
lot on riverfront property. This centrally located site has potential for
redevelopment as housing or as a civic building with a strong
orientation to the river. City Hall should remain as close to the center
of the Capitol District as possible, but if it must be relocated, or if city
offices need to be consolidated in a modern building, this site should
be considered. It should be designed to provide riverfront amenities
and a pedestrian bridge across the river.
Riverfront Parking Structure
(on Grand Avenue between Washtenaw Street and Michigan Avenue)
The site is located near the Washington Avenue retail area and the
CATA Transportation Center and is underutilized as a surface parking
lot on riverfront property. This site has potential for redevelopment as
housing or as a mixed use office building with a strong orientation
tothe river. Structured parking should be a component in the
development but should not negatively impact the waterfront or the
4-51 March 1999
streetscape as the existing building does. A riverwalk link should
bean integral part of the project.
Additional Redevelopment Opportunities
Central Lansing has unique assets that offer these additional
opportunities:
• to adapt vacant industrial, office, or storage space for
residential use.
• to construct mixed -use infill development on the larger surface
parking lots. Such developments could include parking above
or below street -level commercial/office uses, and loft or
penthouse residential units in the upper floors.
to preserve the historic character that is an important feature in
all three districts.
• to preserve important vistas of the Capitol, the downtown
skyline, and the riverfront.
• to market and develop properties with such vistas in
accordance with this Plan
• to provide RiverTrail connections for properties developed
adjacent to the river.
View of the Riverfront
4-52 March 1999
•
•
•
•
•
Recommended River Plaza on the City Market Riverfront
4-53 March 1999
Section V
Strategic Implementation Plan
The success of any plan is directly related to the degree to which it is
implemented. It is first critical to identify the agency or department
❖ Designate a Primary
which is responsible for coordinating the strategies and assuring that
Implementation Agency
they are proactively pursued. Strategies to implement a plan can then ._.
be identified in three categories: 1) political, 2) fiscal, and 3)
•:• Launch Marketing
regulatory. The political element requires knowledge, understanding
Initiatives
and support of the Plan by the City Council, the Planning Board and
••• Promote Housing
Rehabilitation
community residents. Their support is then measured by the financial
and human resources which are dedicated to the implementation of
•:• Amend the city zoning
the Plan as well as support for changes in local ordinances and state
Ordinance and Map
laws which will allow the more efficient and effective implementation
of the Plan.
•:• Form Public and Private
Partnerships and
The recommendations of this Plan are grounded in practicality. The
Public/Public Partnerships
transportation recommendations were particularly reviewed and met
the test of "can this really be done". Many of the land use
•:• Increase Code enforcement
recommendations have a basis in "supportable floor space" which
•:• Launch a Cornerstone
was determined by a detailed market study. All recommendations,
Project
however, have a focus of making central Lansing a vital and
energizing place.
General Administration
The recommendations contained in this Plan are complex and must
be accomplished utilizing teamwork and persistence. Given the
complexity and the constant demands on staff for new projects, it is
recommended that an agency outside the regular government
bureaucracy take the responsibility to guide and coordinate the
overall implementation of the Plan. This agency would provide
leadership and accountability. Their role would be to vigorously
pursue downtown and Old Town development in accordance with
The Plan. Responsibilities would include:
1. Recruit new retail, office and manufacturing business to
appropriate areas within the Central Area of Lansing in
accordance with The Plan.
2. Recruit, organize and coordinate public and private
sector resources to implement various elements and
strategies of The Plan.
3. Promote and market downtown and Old Town
locations for new and/or expanded business
opportunities.
5-1 March 1999
4. Create promotional and marketing activities such as
festivals and special events, which will draw new
customers into the downtown and Old Town area.
5. Work with other quasi -public entities (such as Lansing
Entertainment Public Facilities Authority (LEPFA) to
assure success through coordination and teamwork.
6. Produce an annual report on accomplishments and
project completions as well as a detailed work plan for
completing upcoming tasks.
To assure vigorous implementation of this Plan, a full time position
devoted and focused on the above duties should be funded within a
supportive agency structure, such as the Principal Shopping District
(PSD). The agency structure must provide a stable environment, with
a readily accessible vehicle for coordinating with city departments
and developing complementary interagency work programs. It must
also provide dependable funding, and be a "known" quantity in the
community (reducing the overall organizational start-up time) in order
to provide efficient and effective implementation.
Political/Educational Administration
The best way to insure that The Plan will be supported and
implemented in the future is to empower citizens through education,
knowledge and continued opportunities to participate and evaluate
the strategies contained in The Plan.
Therefore, the City, through the Department of Planning and
Neighborhood Development and the Planning Board will develop
continuing education programs for the general citizenry about various
aspects of The Plan.
In addition, a interactive feedback and assessment system will be
developed by Planning Board and staff in order to annually update
The Plan recommendations and to determine priorities for the
upcoming year.
Financial Administration
The Plan will be supported financially in a variety of ways. The
primary governmental support will be in the form of financial support
for public improvements and other capital expenditures.
These proposed expenditures will be identified and requested
annually in request for appropriations through the Capital
Improvements Program (CIP). Additionally, funding would be
available to the PSD through special assessments and other donations,
grants or contracts.
5-2 March 1999
Existing Neighborhoods
Must be Stabilized
11
•
Additional financial support will be provided through:
1. The continued use of CDBG funds for housing
rehabilitation and other related projects which benefit
low and moderate income families.
2. Economic Development Corporation funding.
3. Historic Preservation Grants and new State tax Credits
for residential and commercial structures.
4. Capital Improvements Program (CIP) general fund dollars
for capital improvements as identified and prioritized.
5. PSD funding.
6. Other grants and loans.
7. Tax Increment Financing (TIF).
Regulatory Administration
Regulatory administration is intended to address problems of
"bureaucracy", conflicting regulations and assessment of ways to
streamline "process". There are several strategies under consideration
which address these issues:
1. Review and amendments to the existing Zoning Code
which will enhance opportunities to realize Plan
objectives. Primary among the possible changes would
be the creation of an Overlay District which would
emphasize mixed use development and address issues of
design, flexible parking and landscaping.
2. Possible modification of the Building Codes to support
more mixed use and adaptive reuse of existing buildings.
3. Possible modification of Public Service codes related to street,
curb and sidewalk design.
4. Possible modification to the landscape,, screening and
buffering code to enhance general design throughout
central Lansing.
Form Public and Private Partnerships and Public/Public
Partnerships
This will be vital if there are to be any meaningful inroad to
implementing The Plan. The City's financial resources for major
projects will be limited. The majority of the current TIF revenue will
continued to service bond debt until the year 2023. It will be
necessary to look to the private sector to assume a major role in the
implementation of this Plan. Additional private investment will not
only increase TIF revenue (which will enable funding for additional
public improvements), but it will also create a momentum for more
private investment.
5-3 March 1999
The public sector can participate in the process with concentrated
code enforcement activity, tax incentives, streamlined regulatory
processes, technical assistance for buildings and facades, and targeted
infrastructure improvements. It is important for the City to work in
partnerships rather than adopting the role of only enforcing
regulations.
Other public sector initiatives could consist of an effort to establish a
neighborhood school in either of the three neighborhoods (Old Town
Village, Washington Village, or Riverfront Neighborhood), something
that the residents of the area say will provide a stabilizing influence in
the area. The replacement of the elementary school in this
neighborhood would be a major step in promoting the residential
base in this area of central Lansing. The close cooperation of the
school district is central to this strategy and is one example of a
public/public partnership.
Implementing the proposed traffic pattern within the central Lansing
street network will also require a public/public partnership, namely
city and state cooperation. The conversion of Cedar and Larch to
two-way traffic will require close cooperation and joint funding.
However, what better venue to demonstrate city/state cooperative
projects than in the State Capitol.
Other public/public partnership efforts will be necessaryfor making
g
Lansing Community College more integral to the flow and energy of
the Capitol District. Making the campus more accessible to
pedestrian and transit circulation will contribute to linkages between
the south and north portions of central Lansing. It will also make
nearby commercial and service establishments more accessible to
LCC students and faculty, and could decrease the demand for parking.
Increase Code Enforcement
Throughout The Plan, there have been strong messages relating to the
need to increase the residential base in central Lansing. There are a
number of residential pockets as well as neighborhoods located in or
near the study area. These areas are current opportunities to build
upon residential development. More residential land use in central
Lansing will provide even more opportunities to add "supportable
floor space" in the area, thereby adding to the vitality of the area.
Concentrated code enforcement efforts would contribute to the
stabilization of these areas, thereby advancing private investment.
Launch a Cornerstone Project
It will be very important to begin at least one initiative once The Plan
is adopted. This will create momentum for implementing the balance
5-4 March 1999
of The Plan. Of course, The Plan is designed so that several initiatives
could begin at the same time and continue on parallel tracks.
A cornerstone project will likely draw a significant amount of
attention. However, other initiatives are recommended for quick
implementation, most notably Phase I of the recommended
circulation improvements. These can be done with little capital
investment and can further the goals and objectives of this Plan.
As The Plan advances, there will likely be a need for other analytical
efforts that support the ongoing implementation. This Plan should
lead to a variety of supporting projects. One such project is the
review of the City Zoning Ordinance and its likely amendments to
address the land use issues in The Plan. Another is a study and
modification of the way -finding system in the City.
Create a Sense of Place
Neighborhood and district names of the concept plan should be
promoted to establish a sense of place for new development. A key
element in determining a prime business location is knowing a site is
part of a larger, stable entity. Developers will likely use these
concepts in their marketing strategies as well, such as "Old Town
Village Store" for a neighborhood service use or "Riverfront Place" for
condominium or apartment homes in the riverfront neighborhood.
These marketing strategies will help establish an identity for the area.
S-S March 1999
Conclusion
Following the recommended implementation strategies will
demonstrate the strong commitment of the City of Lansing to the
revitalization of the downtown.
The City's greatest opportunity is to create a people -oriented
environment within central Lansing. Downtown needs a special
place with restaurants, entertainment and other amenities for workers,
residents, and visitors. Many great cities have utilized their
waterfronts for this purpose, and in doing so have established a
distinctive identity.
Lansing has three main districts in addition to the River, all of which
are essential to the long-term growth of the downtown area.
The improvements proposed in this plan for the Capitol District,
Entertainment District, Old Town District and the riverfront can create
a special identity for Lansing. Each recommendation is intended to
contribute to the character of the particular area and to ensure a stable
business environment from which the other activity centers can
benefit. Further, the recommended uses for these districts are
supported by a thorough market analysis of the area. Similar projects
in other cities throughout the country have had important positive
impacts on the success of the downtown.
People living in the downtown area will add vitality beyond the eight -
to -five working day. The existing and proposed residential
neighborhoods in and near downtown will expand this important
population. Additionally, the circulation recommendations will work
toward improving way -finding and a more pedestrian friendly
environment for the residents, workers and visitors.
Downtown Lansing has the potential to be a great attraction within
the region. The combination of proposed future land use patterns,
circulation improvements, streetscape improvements, riverfront
development, the increased entertainment and new housing will
position the City as the preferred place to work, live and visit in the
future.
5-6 March 1999
❖ Signage
❖ Architecture
❖ Landscaping
❖ Subdivision Regulations
❖ Parking Standards
❖ Building/Zoning Codes
•
11
•
•
•
Consultant Team Acknowledgments
McKenna Associates, Incorporated
Primary Consultant
Phillip C. McKenna, PCP, AICP
President
Kenneth Dettloff, PCP, AICP
Vice President
Lori Leland -Kirk, RLA, AICP
Manager of Design
Caryn M. Champine
Senior Planner
Sabah Aboody-Keer
Associate Urban Designer
Scott Lee
Senior Planner
John Otwell
Graphic Designer
Mario Ortega
Assistant Planner/Geographic Information Systems Analyst
HNTB Michigan, Incorporated
Chuck Dulic, P.E.
Vice President
David Wenzel, AICP
Director of Planning and Landscape Architecture
Chris Luz, P.E.
Traffic Engineer
Patrick B. Waterman
Planner
Jeff Siegel
Planner
The Green Group
Jeffrey S. Green
President/ Chief Operating Officer
Subha Ramesh
Executive Vice President
Ronald J. Hershey
Senior Analyst
5-8 March 1999